U.S. Government Publishing Office

FY2023 Annual Performance Plan

FY2021 Annual Performance Report

April 2022
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About GPO

Established in 1861, GPO’s mission can be traced to the requirement in Article I of the 

Constitution that Congress “keep a journal of its proceedings and from time to time publish the 

same.” GPO’s Plant Operations and Print Procurement Operations produce the official 

publications of Congress, the White House, and Federal agencies in digital and print formats. 

GPO’s information dissemination programs provide public access to the official publications 

and information of the Government in both digital and print formats through an official 

website (govinfo.gov), a partnership with Federal depository libraries nationwide, and online 

bookstore sales. Total GPO employment today is approximately 1,550.

GPO operates on a revolving fund basis, like a business. Just 12 percent of GPO’s funding comes 

from direct appropriations to cover the cost of congressional work, the Federal Depository 

Library Program and supporting distribution programs, and increases to working capital for 

specified projects in GPO’s Business Operations Revolving Fund. All other revenues to GPO are 

reimbursements from agencies for work performed or sales of publications to the public.

What We Do

Congressional publications services are the primary function of GPO’s Plant Operations facility 

in Washington, DC. In addition to the Congressional Record, containing the daily proceedings 

of Congress, GPO produces bills, hearings, reports, and other legislative documents, in digital 

and print formats, as required by the Senate and House of Representatives and their 

committees. GPO’s Plant Operations facility also produces the daily Federal Register and Code 

of Federal Regulations, and the annual Budget of the U.S. Government, as well as U.S. 

passports and other secure Federal credentials. GPO has an additional facility in Mississippi 

for passport and secure credential production.

GPO provides centralized operations for the procurement of information products for the 

Federal Government, purchasing approximately $402.3 million worth of products from private 

sector vendors nationwide for Federal agency customers in FY 2021. About 77 percent of all 

the products ordered annually from GPO (other than essential congressional and Federal 

agency work produced by Plant Operations, including passports and secure credentials) are 

procured from the private sector including Social Security cards, census and tax forms, and 

Medicaid and Medicare materials. GPO typically awards contracts to 1,000–2,000 printing 

contractors a year on a competitive basis, and nearly 10,000 companies are registered to do 

business with the agency, using GPO as their one-stop shop for print and related services 

contract opportunities. In FY 2021, GPO awarded jobs to vendors in all 50 states, plus the 

District of Columbia, Puerto Rico, and Guam. GPO’s relationship with the private sector dates 
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back to the 1940s and this program provides significant economic opportunity for the printing 

industry and local economies. The majority of the firms GPO deals with are small businesses of

20 employees or less.

GPO’s primary information dissemination program involves a partnership with approximately 

1,100 Federal depository libraries nationwide. Today, the partnership is predominantly 

electronic, but tangible formats are distributed where required. GPO provides public access to 

millions of searchable titles on govinfo.gov and through links in GPO’s Catalog of U.S. 

Government Publications. GPO also provides for public sale of Government publications via its 

online bookstore, and offers eBooks through partnerships with multiple vendors.

Mission

Keeping America Informed as the official, digital, and secure source for producing, preserving, 

and distributing official Federal Government publications and information products for 

Congress, Federal agencies, and the American public.

Vision

An informed nation that has convenient and reliable access to their government’s information 

through GPO’s products and services.

Values

GPO’s core values define our character. These values transcend product and market cycles, 

management trends, technological change, and individual leaders. Over the years, GPO has 

developed new product lines, employed new strategies, reengineered processes, and 

significantly restructured the organization, yet the core values have remained intact.

Commitment - GPO has had the responsibility of Keeping America Informed for 160 years. It 

continues that long tradition by providing an uncompromised dedication to authentic, fast, and 

reliable service.

Customer Service - GPO has a customer-centric approach and has agency-wide procedures, 

policies, and activities in place to ensure we are meeting customers’ needs and exceeding their 

expectations.

Innovation - GPO is committed to anticipating change and implementing new programs, 

processes, and technologies that bring value to our organization and customers.
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Diversity - GPO is dedicated to diversity in every aspect of the business. Our commitment to 

diversity helps serve customers better and provides a positive work environment for 

employees. GPO is committed to promoting and supporting an inclusive environment that 

provides to all employees the chance to work to their full potential.

Integrity - GPO’s employees believe that honesty and the highest ethics form the cornerstone 

of the organization and create an environment of trust.

Teamwork - GPO employees treat one another with dignity and respect and communicate 

openly. GPO’s environment fosters collaboration and innovation while maintaining individual

accountability. The agency partners with the Government and the private sector to provide the 

best value to customers.

Goal 1: Exceed Our Stakeholders’ Expectations

GPO exists to serve our stakeholders: Congress, Federal agencies, and the public, and in doing 

so, we work with a multitude of organizations, entities, private sector businesses, and 

interested communities. We endeavor to provide all of these stakeholder groups with efficient, 

cost-effective, and modern products and services that deliver results and exceed customer 

expectations. It is our goal to provide all stakeholders with world-class customer service 

together with product innovation through a wide range of publishing and technology vehicles.

Strategies

• Meet evolving stakeholder needs with a modern publishing portfolio of print and digital 

products and services.

• Provide the most trusted secure credentialing products and services in Government.

• Use analytics to improve the customer experience.

• Streamline customer-facing processes to optimize the customer experience.

• Meet the evolving needs of Congress. 

Goal 2: Enhance Access to Federal Government 

Information

In pursuit of our vision of an informed nation, GPO will continue to provide authentic, 

published Government information to the public through a variety of print and digital 
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technology vehicles, both efficiently and securely. Our mission of Keeping America Informed has 

not wavered in our 160 years; what has changed is the range of formats and channels through 

which stakeholders expect to receive information. We further Government transparency 

efforts and continue to evolve our approach to public information dissemination.

Strategies

• Increase the amount of U.S. Government information available for free to the public 

and enhance access to information to meet evolving user needs.

• Support access and discoverability through the Federal Depository Library Program

and the Cataloging and Indexing Program.

• Ensure security, authenticity, and accessibility of the nation’s publications for future 

generations.

Goal 3: Strengthen Our Position as the GovernmentWide Authority on Publishing

GPO is an authority on printing through 160 years of experience and now seeks to strengthen 

and expand our expertise in all areas of publishing to reflect the transformation to a contentcentric provider of information. GPO is a primary source and a central hub for Federal 

Government information from all three branches.

Strategies

• Provide best practices, standards, and training to support evolving Federal agency 

publishing needs.

• Provide products and services at every stage of the publishing lifecycle.

• Communicate our unique value and evolved portfolio of products and services.

Goal 4: Promote Collaboration and Innovation within 

Government

GPO is perfectly positioned based on our existing relationships across all three branches of the 

Federal Government to leverage the collective expertise of the Government in pursuit of 

interoperability of information with an outcome of better access to information. GPO 

collaborates with a number of other Federal agencies on solutions that enable both agencies to 

better fulfill their missions.
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Strategies 

• Provide shared services across Government and connect Federal agencies with 

private sector businesses through our procurement program.

• Form strategic partnerships where collaboration and innovation can flourish.

• Support Government-wide innovation and interoperability.

Goal 5: Engage Employees and Enhance Internal 

Operations

GPO’s ability to be viewed as an employer of choice depends on the agency’s ability to develop 

and attract quality employees and to motivate them to perform at high levels. GPO is 

committed to treating all employees fairly, respecting their diversity, and valuing their 

contributions. GPO also utilizes a cost effective and collaborative approach in managing GPO’s 

business processes to help the agency achieve its strategic initiatives and ensure continued 

financial stability.

Strategies

• Build and retain a workforce that is talented, diverse, motivated, and committed.

• Reduce our environmental footprint.

• Modernize and streamline internal processes and systems.
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Priority Programs and Projects Mapped to Agency Goals and Strategies

XPubPassportsgovinfoDigital PressesPOMSDigitizationUSLMPublishFacilitiesData CenterG-InvoicingAskGPOCloud

G1 Exceed Our Stakeholders’ Expectations

S1.1 Meet evolving stakeholder needs with a modern publishing portfolio of print and digital products 

and services. X X X X X X X

S1.2 Provide the most trusted secure credentialing products and services in Government. X

S1.3 Use analytics to improve the customer experience. X X X X X

S1.4 Streamline customer-facing processes to optimize the customer experience. X X X X X X X

S1.5 Meet the evolving needs of Congress. X X X X X X X X

G2 Enhance Access to Federal Government Information

S2.1 Increase the amount of U.S. Government information available for free to the public and enhance 

access to information to meet evolving user needs. X X X X X X X

S2.2 Support access and discoverability through the Federal Depository Library Program and the 

Cataloging and Indexing Program. X X X X X

S2.3 Ensure security, authenticity, and accessibility of the nation’s publications for future generations. X X X X X X

G3 Strengthen Our Position as the Government-Wide Authority on Publishing

S3.1 Provide best practices, standards, and training to support evolving Federal agency publishing 

needs. X X X X

S3.2 Provide products and services at every stage of the publishing lifecycle. X X X X X X X X X

S3.3 Communicate our unique value and evolved portfolio of products and services. X X X X

G4 Promote Collaboration and Innovation within Government

S4.1 Provide shared services across Government and connect Federal agencies with private sector 

businesses through our procurement program. X

S4.2 Form strategic partnerships where collaboration and innovation can flourish. X X X X X X

S4.3 Support Government-wide innovation and interoperability. X X X X X X

G5 Engage Employees and Enhance Internal Operations

S5.1 Build and retain a workforce that is talented, diverse, motivated, and committed. X X X X X X X X X X X X X

S5.2 Reduce our environmental footprint. X X X

S5.3 Modernize and streamline internal processes and systems. X X X X X X X X X
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Priority Program and Project Performance

XPub

Replace GPO’s legacy Microcomp system and locator-coded text format with XPub, an XMLbased composition ecosystem.

FY21 FY22

Move the composition of 

Congressional Bills, Public and 

Private Laws, and the Statutes 

at Large with XPub into 

production.

Carry Over 

to FY22 –

See Note

Continue moving the 

composition of Congressional 

Bills, Public and Private Laws, 

and the Statutes at Large with 

XPub into production.

On Track

Note

The remaining development tasks for Congressional Bills, Public and Private Laws, and the 

Statutes at Large are targeted to be completed in FY22. Once production ready, GPO will work 

with House, Senate, and OFR customers to determine the timeframe for deployment to users. 

FY23

Complete moving the composition of Congressional Bills, Public and Private Laws, and the 

Statutes at Large with XPub into production. Perform multiple production releases for additional 

publications and iteratively implement functionality to modernize GPO’s Pre-Press operations.
8

USLM

Model, convert, and provide access to documents in an XML format that conforms to the United 

States Legislative Markup (USLM) schema. 

FY21 FY22

Convert Statute Compilations 

into USLM XML and provide 

access to the files on govinfo.

Complete Model initial prioritized bill 

versions in USLM XML and 

update the USLM schema.

On Track

FY23

Model additional prioritized bill versions in USLM XML and update the USLM schema. 
9

Digital Presses

Acquire presses for the production of the Congressional Record, Federal Register, and 

Congressional Calendars to replace current press equipment.

FY21 FY22

• Produce the entire suite of 

daily Congressional 

publications and the Federal 

Register on the inkjet presses 

and associated bindery 

equipment. 

• Install standalone digital 

handfed binder for efficient 

handling of small count 

books.

Complete • Add redundant binding 

capability to support single 

point of failure post press 

processes in the digital inkjet 

production operation. 

• Evaluate variable data 

solutions for industrial inkjet 

applications.

On Track

FY23

Research a new highly-automated state-of-the-art sheet-fed color press.
10

POMS (Plant Operations Manufacturing System)

Replace GPO’s legacy mainframe Plant production, estimating, planning, and data collection 

systems with state-of-the-art EFI Pace, a print industry management information system / 

enterprise resource planning (MIS/ERP) solution. 

FY21 FY22

• Complete configuration and 

customization of Pace 

modules.

• Integrate Pace with Oracle 

(GBIS).

• Begin testing of POMS.

Carry Over 

to FY22 –

See Note

• Complete configuration and 

customization of Pace 

modules.

• Integrate Pace with Oracle 

(GBIS).

• Begin testing of POMS.

• Begin end-to-end integration 

activities.

• Begin operating Pace in 

production in parallel with the 

legacy PEPS system.

On Track

Note

Challenges with maintaining full project resources in FY21 prevented GPO from fully completing 

the FY21 objectives as some project activities were placed on hold. However, significant 

progress on the objectives was achieved in spite of these limitations. The POMS system was 

modified with a number of configurations and customizations to meet specific GPO data and 

production workflow requirements including order entry, job estimating and costing, and 

reporting. Additionally, the integration of POMS system components for Pace and GBIS/Oracle 

was developed and tested in full, and it awaits final implementation. Testing of the POMS 

system for the above configurations, customizations, and the system component integration 

development was completed. Project staffing levels are anticipated to return to operational 

levels in FY22 Q3 with initial parallel testing projected by the end of FY22.

FY23

Continue parallel testing of POMS to enable GPO to transition from the current legacy systems 

to POMS as the new production system of record. Additional enhancements of the POMS 

system will be analyzed and established with the objective of increasing system functionality 

and providing improved analytical support to GPO and its customers. 
11

Publish

Launch a system that automates, streamlines, and enhances the functions of GPO’s Print 

Procurement Program. 

FY21 FY22

Release a Minimum Viable 

Product (MVP) to production.

Complete Begin developing functionality 

to support retirement of 

mainframe applications.

On Track

FY23

Continue developing functionality to support retirement of mainframe applications, and deliver 

new and enhanced order management functionality for customers and vendors.

G-Invoicing 

Integrate the G-Invoicing solution into GPO enterprise business processes and systems to 

comply with the Treasury Department’s October 2022 mandate.

FY21 FY22

Perform scenario testing with 

internal and external 

stakeholders in the G-Invoicing 

QA-C environment, and obtain 

system upgrade resources.

Complete Begin brokering initial General 

Terms and Conditions 

agreements (GT&Cs) with 

Federal trading partners in 

coordination with the Treasury 

Department’s timeline.

On Track

FY23

Begin phased transition to support new orders in the G-Invoicing production environment, and 

integrate GPO’s Oracle platform with G-Invoicing.
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govinfo

Manage, develop, and support a public access system and ISO 16363 certified Trustworthy 

Digital Repository.

FY21 FY22

• Perform quarterly releases of 

new content and functionality 

including providing access to 

the initial Serial Set volumes 

and Statute Compilations in 

USLM XML. 

• Provide access to files from 

XPub for Congressional Bills, 

Public and Private Laws, and 

the Statutes at Large. 

Complete 

Carry Over 

to FY22 –

See Note

• Perform quarterly releases of 

new content and functionality.

• Begin a server and storage 

refresh for non-production 

environments at GPO’s new 

remote primary data center.

• Provide access to files from 

XPub for Congressional Bills, 

Public and Private Laws, and 

the Statutes at Large.

On Track

Note

GPO completed development tasks to support receiving files from XPub for Congressional Bills 

and Public and Private Laws. Development tasks for the Statutes at Large will be completed 

when sample files are available from XPub. Files for Enrolled Bills, Public and Private Laws, 

and the Statutes at Large will be made available on govinfo when XPub is in production. 

FY23

Perform quarterly releases of new content and functionality, and begin a server and storage 

refresh for production environments at GPO’s primary and secondary data centers.
13

Digitizing Historic Publications

Digitize historic Federal Government publications for availability on govinfo. 

FY21 FY22

Digitize and provide access to 

additional House and Senate 

hearings, the Monthly Catalog 

of U.S. Government 

Publications and other related 

indices, and the initial Serial Set 

volumes in partnership with the 

Library of Congress.

Complete Begin digitizing the 

Congressional Directory and 

continue to collaborate with the 

Law Library of Congress to 

make more digitized serial Set 

volumes available on govinfo. 

On Track

FY23

Digitize and provide access to Congressional committee prints and additional Congressional 

committee hearings. Continue to collaborate with the Law Library of Congress to make more 

digitized Serial Set volumes available on govinfo.
14

NextGen Passports

Support the Department of State’s launch of a Next Generation of e-Passports by printing and 

manufacturing the new passport books with enhanced security features.

FY21 FY22

• Launch the production of 

NextGen Exemplar, Official, 

Diplomatic, and Tourist 

NextGen Passports. 

• Perform modifications to 

GPO equipment and 

processes that will optimize 

production and maximize 

product quality. 

• Utilize multiple crossfunctional teams of experts to 

identify, respond, mitigate, 

and solve all unknown and 

unexpected NextGen 

Passport production launch 

and ramp-up challenges.

Complete

Carryover to 

FY22 – See 

Note

Complete

• Continue to strengthen the 

quality assurance programs, 

process and equipment 

improvement projects, and 

customer focused initiatives 

needed to reach steady state 

production, quality packaging, 

and distribution systems for a 

long term NextGen Passport 

production program.

• Perform modifications to 

GPO equipment and 

processes that will optimize 

production and maximize 

product quality. 

On Track

Note

The planned modifications to GPO equipment were delayed due to the pandemic, supply chain 

issues, and travel restrictions. The equipment modifications are continuing in FY22.

FY23

Continue to strengthen the quality assurance programs, process and equipment improvement 

projects, and customer focused initiatives needed to reach steady state production, quality 

packaging, and distribution systems for a long term NextGen Passport production program.
15

Data Center Relocation

Relocate GPO’s data center operations to a remote primary facility, and upgrade the data 

center at headquarters to function as a backup.

FY21 FY22

• Build out the remote primary 

data center infrastructure 

such as floor space, power, 

air conditioning, and 

networking cables. 

• Procure, install, configure, 

and test infrastructure 

systems. 

• Replicate and validate 

production applications from 

current primary data center.

Complete

Complete

Carryover to 

FY22 – See 

Note

• Acquire Authority to Operate 

(ATO), receive sign-off from 

business units, and begin 

migrating GPO’s data center 

operation from the legacy 

facility to the new facility.

• Replicate and validate 

production applications from 

current primary data center.

On Track

Note

Equipment for the new primary data center arrived late due to the pandemic. 

FY23

Migrate enterprise applications and services.
16

Cloud Implementation

Establish and enhance a cloud smart strategy.

FY21 FY22

• Pilot three systems including 

the Publish Minimum Viable 

Product, GPO File Sharing, 

GPO Intranet, and the Identity 

Management Policy System.

• Expand the use of Platform 

and Infrastructure as a 

Service.

• Complete the govinfo cloud 

backup project.

Complete • Leverage cloud services for 

infrastructure and for

enhanced business 

intelligence and reporting.

• Enhance web application 

monitoring and optimize 

costs.

• Evaluate security 

enhancements for cloud 

systems for implementation. 

• Advocate cloud use within 

the GPO enterprise.

• Encourage migration of 

applications and services to 

the cloud.

On Track

FY23

Implement additional security features, pilot new cloud services, and implement cloud storage.
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Facilities Changes

Perform multiple improvements to GPO headquarters and regional office facilities. 

FY21 FY22

• Award a construction contract 

to repair the basement and 

substructure of GPO’s 

garage.

• Award a construction contract 

for the second phase of 

Building D loading dock.

• Award an engineering design 

contract to upgrade GPO’s 

data center at headquarters.

• Take prudent steps to 

consolidate Plant Operations 

from Building A to Building C.

• Award an engineering design 

contract for the Next 

Generation Press and 

Passport in Building 4.

• Complete the design for 

GPO’s Building Automation 

System, rollout GPO’s new

Computerized Maintenance 

Management System 

(Nuvolo).

• Close the San Diego regional 

office.

Carry Over 

to FY22 –

See Note 1

Carry Over 

to FY22 –

See Note 2

Carry Over 

to FY22 –

See Note 3

Carry Over 

to FY22 –

See Note 4

Complete

Complete

Complete

• Start construction of GPO’s 

Building Automation System.

• Establish common levels of 

support for GPO units and 

tenants.

• Improve GPO’s leasing 

program by applying 

Government best practices. 

• Award a construction contract 

to repair the basement and 

substructure of GPO’s 

garage.

• Award a construction contract 

for the second phase of 

Building D loading dock.

• Award an engineering design 

contract to upgrade GPO’s 

data center at headquarters.

• Take prudent steps to 

consolidate Plant Operations 

from Building A to Building C.

 

On Track
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Facilities Changes (continued)

Note

1. GPO solicited a construction contract to repair the basement and substructure of the garage, 

and the procurement is in progress. 

2. The construction contract for the 2nd phase of the Building D loading dock was delayed due 

to personnel shortages. GPO solicited a construction contract, and the procurement is in 

progress. 

3. GPO solicited a contract for the Architectural and Engineering Design of the Data Center, 

and the procurement is in progress. 

4. GPO has taken steps to consolidate Bindery Operations from Building A to Building C so that 

the available space can be leased to NARA. The first step is to remove existing 98 Presses. 

GPO solicited a contract to remove the 98 Presses, and the procurement is in progress.

FY23

Continue to make targeted infrastructure investments to improve the quality of life for GPO’s 

employees, tenants, and visitors. 
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AskGPO Update 

Replace GPO’s legacy Customer Relationship Management (CRM) system.

FY21 FY22

Perform continued system 

operations, sustainment, 

enhancements, and data 

migrations from the legacy CRM 

system.

Complete Perform discovery and 

development of further 

enhancements for the new 

CRM system incorporating new 

tools and functionality.

On Track

FY23

Continue to develop and enhance the new CRM system as GPO upgrades and modernizes 

systems within Library Services and Content Management (LSCM). These developments 

will provide new tools and functionality for both LSCM and Federal Depository Libraries.