U.S. GENERAL SERVICES ADMINISTRATION 

FY 2020 ANNUAL PERFORMANCE PLAN AND

FY 2018 ANNUAL PERFORMANCE REPORT

REAL ESTATE ACQUISITION TECHNOLOGY SHARED SERVICES
 U.S. General Services Administration Annual Performance Plan and Report 

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TABLE OF CONTENTS 

EXECUTIVE SUMMARY 3

PURPOSE 3 

ABOUT GSA 3 

MISSION, VISION, and VALUES 4 

ORGANIZATIONAL STRUCTURE 4 

FY 2018 ANNUAL PERFORMANCE REPORT 9

FY 2020 ANNUAL PERFORMANCE PLAN 11

STRATEGIC FRAMEWORK 11 

STRATEGIC OBJECTIVES (SO) and PERFORMANCE INDICATORS SUMMARY 12 

FY 2020 ANNUAL PERFORMANCE PLAN DETAILS 17 

STRATEGIC GOAL 1 17

Save taxpayer money through better management of Federal real estate. 17 

STRATEGIC GOAL 2 30

Establish GSA as the premier provider of efficient and effective acquisition solutions across the 

Federal Government. 30

STRATEGIC GOAL 3 45

Improve the way Federal agencies buy, build, and use technology. 45 

STRATEGIC GOAL 4 55

Design and deliver expanded shared services within GSA and across the Federal Government to 

improve performance and save taxpayer money. 55

MANAGEMENT AND PERFORMANCE CHALLENGES 69

EVIDENCE BUILDING 69

DATA VALIDATION AND VERIFICATION 69

LOWER-PRIORITY PROGRAM ACTIVITIES 70

 
 U.S. General Services Administration Annual Performance Plan and Report 

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EXECUTIVE SUMMARY 

PURPOSE 

The U.S. General Services Administration (GSA) Annual Performance Report provides information on the 

agency’s status in meeting the goals and objectives described in the agency’s FY 2018 Annual 

Performance Plan, including progress on strategic objectives and performance goals. 

The GSA Annual Performance Plan presents the level of performance to be achieved in FY 2020. The Plan 

describes strategic goals, strategic objectives, supporting performance goals, and performance 

indicators to be accomplished. 

The following GSA FY 2018 Annual Performance Report and FY 2020 Annual Performance Plan relate 

prior year performance with plans for the current year and budget. Both were prepared in compliance 

with the Government Performance and Results Modernization Act of 2010, Pub L. 111-352, under 

guidance from the U.S. Office of Management and Budget (OMB) Circular No. A-11 (2018), Preparation, 

Submission, and Execution of the Budget. 

ABOUT GSA 

GSA has the honor of not only serving the American people, but also of supporting Federal agencies as 

they carry out their critical missions. GSA’s mission-support role ties back to our founding by President 

Harry S. Truman in 1949. In establishing GSA, President Truman sought to create one agency to help the 

Government avoid “senseless duplication, excess cost, and confusion in handling supplies, and providing 

space.” 

Over the last seven decades, the nation’s population has more than doubled, the price of real estate in 

major cities has skyrocketed, super-computers can fit in our pockets, and the world has become vastly 

more interconnected. Federal agencies are striving to match the pace of change by evolving to meet 

new domestic and global challenges and to better serve the American public. 

In 2018, GSA’s mission statement still reflects our position as a mission-enabler for other Federal 

agencies. GSA seeks to deliver value and savings in real estate, acquisition, technology, and other 

mission-support services across Government. Our focus is on delivering value to our partner agencies so 

they can focus their resources on fulfilling their own important missions to the American people. 

Our agency provides the spaces, technical innovations, and goods and services essential to operate the 

Federal Government. We provide workplaces by constructing, managing, and preserving Government 

buildings and by leasing and managing commercial real estate. Our acquisition solutions offer private 

sector professional services, equipment, supplies, telecommunications, and information technology (IT) 

to Government organizations and the military. Our technology leadership helps agencies buy, build, and 

use technology in ways that support their missions to better serve the public. Our implementation of 

Government-wide policies promotes management best practices and efficient Government operations. 

Our success relies on bringing together a talented and diverse workforce -- including real estate experts, 

architects, acquisition specialists, programmers, data scientists, policy analysts -- and building a 

cohesive, customer-focused team. The next section outlines GSA’s mission, vision, and values, and our 

current organizational structure. 
 U.S. General Services Administration Annual Performance Plan and Report 

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MISSION, VISION, and VALUES 

MISSION 

Deliver value and savings in real estate, acquisition, technology, 

and other mission-support services across Government. 

VISION Effective and efficient Government for the American people. 

VALUES Service ● Accountability ● Innovaon

ORGANIZATIONAL STRUCTURE 

Composed of the Federal Acquisition Service (FAS), the Public Buildings Service (PBS), the Office of 

Government-wide Policy (OGP), 11 staff offices, 2 independent offices, and the Federal Permitting 

Improvement Steering Council (FPISC), GSA serves and supports more than 60 Federal departments and 

agencies. Headquartered in Washington, D.C., GSA delivers goods and services to its Federal customers 

through its headquarters and 11 regional offices. 
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GSA LEADERSHIP 

OFFICE OF THE ADMINISTRATOR 

Emily W. Murphy

Administrator 

 

 Allison F. Brigati 

 Deputy Administrator 

Robert Borden

Chief of Staff

 Brian F. Barnes 

White House Liaison 

 NATIONAL SERVICE 

 COMMISSIONERS 

Office of 

Government-wide Policy Independent Offices Federal Permitting Improvement Steering Council 

Alan Thomas

Federal Acquisition 

Service

 Daniel W. Mathews

Public Buildings 

Service

 

 Jessica Salmoiraghi 

Office of 

Government-wide Policy

 

Carol F. Ochoa 

Office of the 

Inspector General

 Jeri Somers

Civilian Board of 

Contract Appeals 

Alex Herrgott 

FPISC Executive 

 Director 

REGIONAL SERVICE ADMINISTRATORS 

Chris Averill 

Region 1 

New England 

Boston, MA

John A. Sarcone III 

Region 2 Northeast 

& Caribbean 

New York, NY

Joyce C. Haas 

Region 3 

Mid-Atlantic 

Philadelphia, PA

Brian Stern 

Region 4 

Southeast Sunbelt 

Atlanta, GA

 

Bradley Hansher 

Region 5 

Great Lakes 

Chicago, IL

Michael Copeland 

Region 6 

The Heartland 

Kansas City, MO

Robert Babcock 

Region 7 

Greater Southwest 

Ft. Worth, TX

Timothy O. Horne 

Region 8 (Acting) 

Rocky Mountain 

Denver, CO

 

Thomas Scott 

Region 9 

Pacific Rim 

San Francisco, CA

Chaun Benjamin 

Region 10 (Acting) 

Northwest/Arctic 

Auburn, WA 

Scott Anderson 

Region 11 

National Capital 

Washington, DC

STAFF OFFICES

Bob Stafford 

Office of 

Administrative 

Services

Gerard Badorrek

Office of the Chief 

Financial Officer

David A. Shive

Office of the Chief 

Information Officer

Mary Gibert 

Office of Civil 

Rights

 

Jeff Post

Office of Congressional 

and Intergovernmental 

Affairs 

 

Anahita Reilly

Office of Customer 

Experience

 Jack St. John 

Office of General 

Counsel

Antonia T. Harris

Office of Human 

Resources 

Management

Robert J. Carter

Office of Mission 

Assurance

Charles Manger

Office of Small 

Business Utilization

 

Mark M. McHale 

Office of Strategic 

Communication
 U.S. General Services Administration Annual Performance Plan and Report 

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NATIONAL SERVICES AND OFFICE OF GOVERNMENT-WIDE POLICY

Federal Acquisition Service (FAS) 

FAS provides Federal agencies over 28 million different products and services, and annually delivers over 

$55B in IT products, services and solutions, telecommunications services, assisted acquisition services, 

travel and transportation management solutions, motor vehicles and fleet services, and charge card 

services. FAS manages over 215,000 leased vehicles, more than 3.5 million charge cards, and provides 

personal property disposal services facilitating the reuse of $1B in excess/surplus 

personal property annually. FAS leverages the buying power of the Federal 

Government by negotiating prices on many products and services required by 

agencies for daily operations. By arranging a network of service providers for IT and 

total solutions for law enforcement, including security and facility management 

systems, FAS is able to meet the operating and mission requirements of a vast array 

of Federal agencies and state, local, and tribal governments. Leveraging its 

technology transformation services and IT portfolios, FAS is developing and deploying Centers of 

Excellence (CoEs) to improve the public’s experience with Government by obtaining and sharing 

technology applications, platforms, and processes to make their services more accessible, efficient, and 

effective. 

 

Public Buildings Service (PBS) 

PBS provides high-quality facility and workspace solutions to more than 55 Federal agencies, disposes of 

excess or unneeded Federal properties, and promotes the adoption of innovative 

workplace solutions and technologies. PBS acquires space on behalf of the Federal 

Government through new construction and leasing. PBS owns or leases over 8,700 

assets and maintains an inventory of nearly 370 million square feet of rentable 

workspace. Within this inventory, PBS has more than 470 owned and leased 

historic properties. Through lease and purchase transactions, PBS delivers the 

workspace necessary to meet the varied missions of its Federal customers. 

Office of Government-wide Policy (OGP) 

OGP uses policies, data, and strategy to drive efficiency and management excellence across the Federal 

Government for key administrative areas including shared services, travel and 

transportation, acquisition, fleet management, IT modernization, and real estate 

management. OGP helps influence agency behavior in these areas through the 

development of Government-wide policy, performance standards, data analysis and 

benchmarking, and transparent reporting of Government-wide data. 
 U.S. General Services Administration Annual Performance Plan and Report 

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STAFF OFFICES

GSA’s staff offices support the enterprise and ensure GSA is prepared to meet the 

needs of customers, both on a day-to-day basis and in crisis situations: 

➢ Office of Administrative Services (OAS)

OAS delivers innovative solutions for GSA’s administrative, workplace, and 

information management needs to facilitate efficient use of Government resources and 

effective risk management. 

➢ Office of the Chief Financial Officer (OCFO)

OCFO provides enterprise-wide budget, financial management, financial analysis, performance 

management, and strategic planning services to GSA business lines and staff offices. 

➢ Office of the Chief Information Officer (OCIO) 

OCIO provides staff with ever-evolving technology to improve capabilities, productivity, 

mobility, agility, and cost savings. GSA IT solutions include laptops, mobile devices, collaborative 

cloud-based software, training, and technical support. 

➢ Office of Civil Rights (OCR)

OCR administers five programs related to Federal civil rights laws and regulations: Equal 

Employment Opportunity, Affirmative Employment, Non-discrimination in Federally Conducted 

Programs and Activities, Environmental Justice, and Non-discrimination in Federally Assisted 

Programs and Activities. OCR also administers the appeals process for administrative grievances 

filed by GSA Employees. 

➢ Office of Congressional and Intergovernmental Affairs (OCIA)

OCIA maintains agency liaison with Congress; prepares and coordinates the GSA annual 

legislative program; communicates the GSA legislative program to OMB, Congress, and other 

interested parties; and works closely with OMB in the coordination and clearance of all 

proposed legislation impacting GSA. 

➢ Office of Customer Experience (OCE)

OCE works with internal clients to enhance relationships with customers, industry partners, and 

stakeholders. OCE improves the end-to-end experience of GSA customers by aligning operations 

to customer needs. OCE leads qualitative and quantitative research, develops customer-centric 

strategies, builds the capacity of teams to practice human-centered design and gather customer 

feedback, and conducts pilots with internal and external partners. 

➢ Office of General Counsel (OGC) 

The Office of General Counsel (OGC) provides sound and timely legal advice and representation 

to our GSA clients to enhance their ability to deliver the best value in real estate, acquisition, 

and technology services to the government and the American people. OGC carries out all legal 

activities of GSA; ensures full and proper implementation of GSA's statutory responsibilities; 

provides legal counsel to the Administrator, the Deputy Administrator, and other officials of GSA 

(with the exception of certain legal activities of the Office of Inspector General and the Civilian 

Board of Contract Appeals). The General Counsel is the chief legal officer of the agency and is 

responsible for legally sound implementation of GSA's mission responsibilities nationwide. 
 U.S. General Services Administration Annual Performance Plan and Report 

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➢ Office of Human Resources Management (OHRM) 

OHRM delivers comprehensive human resources services and solutions to GSA and its 

employees. OHRM’s primary focus is to work with GSA services and staff offices to attract, 

motivate, develop, retain, and reward employees to maintain and enhance a mission-ready 

workforce. 

➢ Office of Mission Assurance (OMA)

OMA ensures resilience and continuity of the agency’s critical business processes by integrating 

and coordinating activities across all domains of security (physical, personnel, and industrial), 

HSPD-12 credentialing, emergency management, and contingency and continuity planning. OMA 

provides an enterprise-wide approach to mission assurance planning while ensuring the safety, 

privacy, and security of GSA facilities, personnel, and assets nationwide. 

➢ Office of Small Business Utilization (OSBU) 

OSBU partners with GSA mission delivery and support offices to meet and exceed statutory 

prime and subcontracting small business and socio-economic small business goals. To achieve 

this, OSBU promotes access to GSA’s nationwide procurement opportunities, and provides 

training to the acquisition workforce and small and socio-economic businesses. 

➢ Office of Strategic Communication (OSC) 

OSC works with internal clients to build effective communication strategies to meet their 

business goals. OSC services include internal communication, graphic design and production, 

media relations, web and social media, audiovisual production, writing and editing, 

speechwriting and executive communication, and risk communication/crisis management. 

INDEPENDENT OFFICES

➢ Office of the Inspector General (OIG) 

OIG is responsible for promoting economy, efficiency, and effectiveness, and for detecting and 

preventing fraud, waste, and mismanagement in GSA programs and operations. 

➢ Civilian Board of Contract Appeals (CBCA) 

The CBCA is an independent tribunal housed within GSA. Its primary responsibility is to 

adjudicate contract disputes between civilian Federal agencies and contractors under the 

Contract Disputes Act. 

FEDERAL PERMITTING IMPROVEMENT STEERING COUNCIL (FPISC)

The FPISC is responsible for leading ongoing Government-wide efforts to modernize the Federal 

environmental review and permitting process for major infrastructure projects and working with Federal 

agency partners to implement and oversee adherence to the statutory requirements set forth in Title 41 

of the Fixing America’s Surface Transportation Act of 2015. 
 U.S. General Services Administration Annual Performance Plan and Report 

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FY 2018 ANNUAL PERFORMANCE REPORT 

GOALS 

Strategic Objectives (SO) and 

Performance Indicators 

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office 

FY 2016 

Results 

FY 2017 

Results 

FY 2018 

Target 

FY 2018 

Results 

(G1) 

REAL ESTATE: 

Achieve 

Government 

cost savings in 

Federal real 

estate.

SO 1.1 Reduce the cost of Federal inventory. 

Vacant space in inventory ↓ PBS 3.0% 2.9% 3.0% 3.3% 

Leases negotiated at or below market rates ↔ 

 ⦿Agency Priority Goal PBS 49% 48% 55% 44% 

Leased revenue after administering program (%) 

↔ PBS -1.16% -0.59% 0 to 2% -0.40% 

Non-competitive sales and donations awarded 

within 220 days ↑ PBS 98% 90% 93% 97.5% 

Public sale properties awarded within 135 days ↑ PBS 98% 98% 98% 98% 

SO 1.2 Establish GSA as a more cost-effective provider of real estate services for all agencies. 

Energy intensity reduction (cumulative % 

reduction from baseline year) ↑

PBS 3.78% 6.41% 7.50% 5.41%

Capital projects on schedule/budget ↑ PBS 98% 99% 90% 90% 

Tenant satisfaction with Government-owned and 

leased space ↑

PBS 65% 61% 63% 60% 

Cleaning and maintenance costs within market 

range ↑

PBS 80.3% 73.2% 78% 73.6% 

(G2) 

ACQUISITION: 

Establish GSA 

as the principal 

provider of 

acquisition 

solutions 

across the 

Federal 

Government.

SO 2.1 Design and deliver GSA products and services that yield measurable savings while aligning with 

customer mission objectives and changing market demand. 

Customer loyalty score (10-point scale) ↑ FAS 7.5 7.4 7.4 7.5 

Acquisition program savings ($) ↑ FAS $6.02B $5.17B $5.22B $5.86B

SO 2.2 Make it easier to do business with the Government by simplifying processes and streamlining access 

for our customers and suppliers. 

Supplier satisfaction score ↑ FAS 3.70* 3.61* 3.80* 3.69* 

SO 2.3 Enhance customer agency access to qualified small and socio-economic businesses. 

Percent of dollars awarded to small business 

prime contracting ↑

OSBU 39.23% 42.68% 35.0% 38.82%**

Percent of dollars awarded to small business 

through subcontracting ↑

OSBU 26.3% 42.4% 29.0% 25.5%** 

Multiple Award Schedule (MAS) business volume 

from small businesses (%) ↑

FAS 37.4% 39.7% 33.0% 38.4%

 * Metric methodology was revised in FY 2018. FY 2016, FY 2017, and FY 2018 results reflect the new methodology. The FY 2018 target was not 

 recalculated and is based on prior-year methodology. 

** Preliminary results shown. Final FY 2018 results to be reported in 2019 by the U.S. Small Business Administration (SBA). 
 U.S. General Services Administration Annual Performance Plan and Report 

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FY 2018 ANNUAL PERFORMANCE REPORT (continued) 

GOALS 

Strategic Objectives (SO) and 

Performance Indicators 

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office

FY 2016 

Results 

FY 2017 

Results 

FY 2018 

Target 

FY 2018 

Results 

(G3) 

TECHNOLOGY: 

Transform the 

way Federal 

agencies buy, 

build, and use 

technology.

SO 3.1 Lead Government-wide technology modernization initiatives. 

Number of customer agency systems with 

FedRAMP authorizations (cumulative) ↑ FAS 72 88 110 121 

SO 3.2 Drive more efficient and innovative Government procurement of technology services. 

Volume of assisted technology acquisitions 

provided ($) FAS $1.54B $3.68B $4.29B $7.47B 

Volume of assisted technology acquisitions 

provided (# of acquisitions) FAS 333 422 503 354

SO 3.3 Lead implementation of technical standards, policies, and strategies. 

Percent increase of Government-wide tiered data 

center closures ↑ OGP n/a 3.55% 6% 8.95%

Percent of Government employees and 

contractors required to log onto Government 

networks with a standardized, secure credential ↑

OGP 72% 81% 83% 96% 

(G4) 

SERVICE 

EXPANSION: 

Expand GSA’s 

role as the lead 

in designing 

and delivering 

expanded and 

shared services 

within GSA and 

across the 

Federal 

Government.

SO 4.1 Develop new organizational capabilities to understand customer demand and deliver integrated 

offerings to support common business processes Government-wide. 

Number of agency-owned (non-GSA) vehicles 

studied and consolidated by GSA, 

(vehicles studied / vehicles consolidated) ↑ 

 ⦿ Agency Priority Goal 

FAS n/a 

 1,136 

n/a 

 911 

25,000 

 500 

76,238 

 1,790 

SO 4.2 Promote adoption of shared services by agencies through policy, guidance, and benchmarking. 

Number of agencies using SPPI’s M3 tools to 

assess readiness for shared services OGP n/a 4 6 31 

SO 4.3 Support the overall mission of GSA by investing in our employees and modeling how we deliver 

internal support services, while providing policy guidance across Government. 

Total operating cost as a percentage of goods and 

services provided ↓ OCFO 9.44% 9.25% 9.20% 8.45% 

Effectiveness of CXO functions, as measured by 

customer satisfaction on a scale of 1 to 7 ↑ CXO 4.96 5.07 5.15 5.16 

Percent of IT portfolio utilizing cloud technologies ↑ OCIO 42% 42% 44% 47% 

Competition rate for GSA acquisitions ↑ OGP 80.3% 81.4% 80.0% 82.59% 

Competitive One-Bid rate for GSA acquisitions↓ OGP 14.3% 14.9% 15.0% 17.96% 

Employee Viewpoint Survey - connection to GSA's 

Mission (% positive) ↑ 

GSA 

Service 

& Staff 

Offices

72.2% 76.2% 76.0% 77.0% 
 U.S. General Services Administration Annual Performance Plan and Report 

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FY 2020 ANNUAL PERFORMANCE PLAN 

STRATEGIC FRAMEWORK 

 The strategic framework as defined in the GSA FY 2018-2022 Strategic Plan is presented below: 

STRATEGIC GOALS (G) 

(G1) REAL ESTATE 

Save taxpayer money 

through better management 

of Federal real estate. 

(G2) ACQUISITION 

Establish GSA as the premier 

provider of efficient and effective 

acquisition solutions across the 

Federal Government. 

(G3) TECHNOLOGY 

Improve the way Federal 

agencies buy, build, and use 

technology. 

(G4) SHARED SERVICES 

Design and deliver expanded 

shared services within GSA and 

across the Federal Government 

to improve performance and 

save taxpayer money.

STRATEGIC OBJECTIVES (SO) and PERFORMANCE GOALS (PG) 

SO 1.1 Reduce the cost of the 

Federal inventory. 

● PG 1.1.1 Reduce vacant space 

in inventory

● PG 1.1.2 Leases negotiated at 

or below market rates 

● PG 1.1.3 Generate sufficient 

funds from operations to 

effectively operate GSA leased 

buildings 

● PG 1.1.4 Timely award of noncompetitive sales and 

donations

● PG 1.1.5 Timely award of 

public sale properties

● PG 1.1.6 Generate revenue 

from GSA and FASTA sales 

SO 2.1 Design and deliver GSA 

products and services that yield 

measurable savings while 

aligning with customer mission 

objectives and changing market 

demand. 

● PG 2.1.1 Increase customer 

satisfaction

● PG 2.1.2 Expand the use of GSA 

acquisition solutions across the 

Government 

SO 3.1 Lead Government-wide 

technology modernization 

initiatives. 

● PG 3.1.1 Provide agencies with 

cloud authorizations to 

modernize IT portfolios 

SO 4.1 Develop new 

organizational capabilities to 

understand customer demand 

and deliver integrated offerings 

to support common business 

processes Government-wide. 

● PG 4.1.1 Expand centralized 

services

SO 2.2 Make it easier to do 

business with the Government 

by simplifying processes and 

streamlining access for our 

customers and suppliers. 

● PG 2.2.1 Increase supplier 

satisfaction

SO 3.2 Drive more efficient 

and innovative Government 

procurement of technology 

services. 

● PG 3.2.1 Improve agency 

technology procurement 

capabilities through acquisition 

consulting 

SO 4.2 Promote adoption of 

shared services by agencies 

through policy, guidance, and 

benchmarking. 

● PG 4.2.1 Reduce barriers to 

facilitate easier adoption of shared 

services

SO 1.2 Establish GSA as a 

more effective provider of 

real estate services for all 

agencies. 

● PG 1.2.1 Reduce total energy 

intensity 

● PG 1.2.2 Complete capital 

projects on schedule/budget 

● PG 1.2.3 Improve tenant 

satisfaction with Governmentowned and leased space

● PG 1.2.4 Provide building 

cleaning and maintenance at 

competitive costs 

SO 2.3 Enhance customer 

agency access to qualified small 

and socio-economic businesses.

● PG 2.3.1 Create more 

opportunities for small and socioeconomic businesses.

SO 3.3 Lead implementation 

of technical standards, 

policies, and strategies. 

● PG 3.3.1 Provide agencies with 

the tools and resources to 

implement IT standards and 

policies

SO 4.3 Support the overall 

mission of GSA by investing in 

our employees and modeling 

how we deliver internal support 

services, while providing policy 

guidance across Government.

● PG 4.3.1 Efficient, effective 

mission-support services at GSA 

(CXO and non-CXO functions)

● PG 4.3.2 Highly engaged GSA 

workforce that is prepared to 

support and deliver new and 

expanded offerings
 U.S. General Services Administration Annual Performance Plan and Report 

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STRATEGIC OBJECTIVES (SO) and PERFORMANCE INDICATORS SUMMARY 

Performance Indicators

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office 

FY 2016 

Results 

FY 2017

Results 

FY 2018 

Results

FY 2019 

Target 

FY 2020 

Target 

SO 1.1 Reduce the cost of the Federal inventory 

Vacant space in inventory ↓ PBS 3.0% 2.9% 3.3% 3.0% 3.0% 

Percent of lease agreements negotiated at or below 

market rates ↔

⦿ Agency Priority Goal

PBS 49% 48% 44% 55% N/A 

Percent of leased revenue available after administering 

leasing program ↔ 

PBS -1.16% -0.59% -0.40% 0 - 2% 0 - 2% 

Percent of non-competitive sales and donations 

awarded within 220 days ↑ 

PBS 98% 90% 97.5% 93% 93% 

Percent of public sale properties awarded within 135 

days ↑

PBS 97.5% 98% 98% 98% 98% 

Gross sales revenue from GSA and FASTA disposals ($) 

↑

PBS $28.8M $115.9M $123.2M $15M $500M 

SO 1.2 Establish GSA as a more effective provider of real estate services for all agencies 

Energy intensity reduction (cumulative percent 

reduction from baseline year) ↑ 

(FY 2019 and FY 2020 targets were reset based on 

Executive Order [E.O.] 13834) 

PBS 3.78% 6.41% 5.41%

0.25% 

increase 

over FY 

2018 results

0.25% 

increase 

over FY 2019 

results 

Percent of capital construction projects on schedule 

and on budget ↑

PBS 98% 99% 90% 85% 85% 

Tenant satisfaction with Government-owned and 

leased space – Facilities Management Index ↑ 

(methodology adjusted to focus on survey questions 

within control of facilities managers) 

PBS 69% 70% 69% 70% 

1% increase 

over FY 2019 

results 

Percent of cleaning and maintenance costs within 

market range ↑

PBS 80.3% 73.2% 73.6% 80% 80% 
 U.S. General Services Administration Annual Performance Plan and Report 

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(continued)

Performance Indicators 

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office 

FY 2016 

Results 

FY 2017 

Results 

FY 2018 

Results 

FY 2019 

Target 

FY 2020 

Target 

SO 2.1 Design and deliver GSA products and services that yield measurable savings while aligning with customer 

mission objectives and changing market demand 

Customer loyalty score (10-point scale) ↑ FAS 7.5 7.4 7.5 7.5 7.6 

Acquisition program savings ($) ↑ FAS $6.02B $5.17B $5.86B $5.90B $6.00B 

SO 2.2 Make it easier to do business with the Government by simplifying processes and streamlining access for our 

customers and suppliers 

Supplier satisfaction score (5-point scale) ↑ FAS 3.70* 3.61* 3.69* 3.73* 3.76* 

SO 2.3 Enhance customer agency access to qualified socio-economic entities 

Percent of GSA contract dollars awarded to small 

business through prime contracting ↑ OSBU 39.23% 42.68% 38.82%** 30.0% TBD*** 

Percent of GSA contract dollars awarded through prime 

contracting to each socio-economic small business 

category ↑ 

 SDB / WOSB / SDVOSB / HUBZone  

OSBU 

SDB 21.64% 

WO 9.31% 

SDV 5.32% 

HUB 3.89%

22.60% 

 8.85% 

 6.45% 

 4.95% 

19.94% 

 8.55% 

 5.63% 

 3.98%**  

5% 

5% 

3% 

3% 

5% 

5% 

3% 

3% 

Percent of GSA contract dollars awarded to small 

business through subcontracting ↑ OSBU 26.3% 42.4% 25.5%** 25.5% TBD*** 

Percent of GSA contract dollars awarded through 

subcontracting to each socio-economic small business 

category ↑ 

 SDB / WOSB / SDVOSB / HUBZone 

OSBU 

SDB 7.60%

WO 5.90%

SDV 0.70% 

HUB 0.40%

5.30% 

6.20% 

1.90% 

1.30% 

5.50% 

4.40% 

1.62% 

 0.94% 

5% 

5% 

3% 

3% 

5% 

5% 

3% 

3% 

Agency peer review score of Small Business Act 

compliance (SBA scorecard composite score) OSBU N/A 19.87% TBD**  20% 20% 

Small business diversification across industries 

(SBA scorecard composite score) OSBU N/A 10.60% TBD** 10% 10% 

Percent of Multiple Award Schedule (MAS) business 

volume from small businesses ↑ FAS 37.4% 39.7% 38.4% 33.0% 33.0% 

 * Metric methodology was revised in FY 2018. FY 2016, FY 2017, and FY 2018 results reflect the new methodology. FY 2019 and FY 2020 

 targets are based on the new methodology. 

 ** Preliminary FY 2018 results are TBD. SBA will report final FY 2018 results in 2019. 

 *** Target will be set by SBA. 

**** SDB = Small Disadvantaged Business WOSB = Women-Owned Small Business 

 SDVOSB = Service-Disabled Veteran-Owned Small Business HUBZone = Historically Underutilized Business Zone
 U.S. General Services Administration Annual Performance Plan and Report 

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(continued)

Performance Indicators 

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office 

FY 2016 

Results 

FY 2017 

Results 

FY 2018 

Results

FY 2019 

Target 

FY 2020 

Target 

SO 3.1 Lead Government-wide technology modernization initiatives 

Number of customer agency systems with FedRAMP 

authorizations (cumulative) ↑ FAS 72 88 121 145 165 

SO 3.2 Drive more efficient and innovative Government procurement of technology services 

Volume of assisted technology acquisitions ($) ↑ FAS $1.54B $3.68B $7.47B $7.61B $7.77B 

Volume of assisted technology acquisitions 

(number of acquisitions) ↑ FAS 333 422 354 364 382 

SO 3.3 Lead implementation of technical standards, policies, and strategies 

Percent increase of Government-wide tiered data 

center closures (cumulative) ↑ OGP N/A 3.55% 8.95% 10.0% 14.0% 

Percent of government employees and contractors that 

log onto government networks with a standardized, 

secure credential.↑

OGP 72% 81% 96% 95% 98% 

SO 4.1 Develop new organizational capabilities to understand customer demand and deliver integrated offerings to 

support common business processes Government-wide 

Number of agency-owned (non-GSA) vehicles studied 

and consolidated by GSA (vehicles studied / vehicles 

consolidated) ↑ 

⦿ Agency Priority Goal 

FAS 

n/a

studied 

 1,136 

consolidated

n/a

studied 

911 

consolidated

76,238 

studied 

 1,790 

consolidated 

100,000

studied 

 

 5,000 

consolidated

5,000 

Consolidated

SO 4.2 Promote adoption of shared services by agencies through policy, guidance, and benchmarking 

Number of agencies using GSA’s M3 tools and best 

practices to assess readiness for shared services ↑ OGP N/A 4 31 35 35 

Number of business lines with completed business 

standards and data elements per the Federal Integrated 

Business Framework (FIBF) 

OGP N/A N/A N/A 3 5 
 U.S. General Services Administration Annual Performance Plan and Report 

15 

(continued)

Performance Indicators 

(Desired direction: ↑= increasing 

↓= decreasing ↔ = within range)

Lead 

Office 

FY 2016 

Results

FY 2017 

Results 

FY 2018 

Results

FY 2019 

Target 

FY 2020 

Target 

SO 4.3 Support the overall mission of GSA by investing in our employees and modeling how we deliver internal 

support services, while providing policy guidance across Government 

Total GSA operating cost as a percentage of goods and 

services provided ↓ OCFO 9.44% 9.25% 8.45% 9.00% 8.90% 

Effectiveness of GSA CXO functions, as measured by 

customer satisfaction (7-point scale) ↑

CXO 4.96 5.07 5.16 5.23 5.27 

Percent of GSA IT portfolio utilizing cloud 

technologies ↑ OCIO 42% 42% 47% 50% 52% 

Competition rate for GSA acquisitions ↑ OGP 80.3% 81.4% 82.6% 80.0% 80.0% 

Competitive One-Bid rate for GSA acquisitions ↓ OGP 14.3% 14.9% 18.0% 15.0% 15.0% 

Federal Employee Viewpoint Survey - Connection to 

GSA's Mission (% positive) ↑ 

GSA 

Service 

& Staff 

Offices 

72.2% 76.2% 77% 78% 79% 

 
 U.S. General Services Administration Annual Performance Plan and Report 

16 

FY 2018 to 2019 AGENCY PRIORITY GOALS (APGs) 

______________________________________________________________

 

APG 1 

Generate savings by negotiating 55% of leases at or below market rates. 

Strategy: 

GSA will generate savings for taxpayers by negotiating 55% of the lease office 

space agreements at or below market rates in FY 2018 and FY 2019.

APG 2 

Expansion of centralized services 

Strategy: 

GSA will develop and expand common solutions and service offerings for missionsupport services, to drive more efficient and effective processes that help agencies 

maximize mission delivery. Specifically, to eliminate redundancies and reduce 

Government-wide fleet costs, GSA’s Fleet program will partner with agencies to 

study their vehicle inventories to identify savings and efficiency opportunities, 

reviewing over 75,000 vehicles in FY 2018 and 100,000 in FY 2019 and 

consolidating over 1,700 vehicles in FY 2018 and 5,000 vehicles in FY 2019, 

pending study results. 

 
 U.S. General Services Administration Annual Performance Plan and Report 

17 

FY 2020 ANNUAL PERFORMANCE PLAN DETAILS 

STRATEGIC GOAL 1 

Save taxpayer money through better management of Federal real estate. 

GSA will achieve cost savings for the Federal Government by enhancing asset management and 

optimizing space utilization to provide the best price in Federal leased and owned real estate. Effective 

and integrated delivery of workspace solutions will provide our customers the opportunity to focus time 

and resources on their mission-related operations. Greater integration and consistency of our services 

will also improve the experience of our Federal customers. 

Innovative and shared portfolio planning at the local and national level will be used to find the right 

solution at a lower cost for new leases. In doing so, GSA will lower the cost associated with its owned 

and leased real estate portfolio to better meet the needs of its customers. GSA will also focus on 

optimizing revenue from the sales of GSA and other federally owned real property assets to ensure a 

Government-owned portfolio of high-performing assets. 

_____________________________________________________________________________

Strategic Objective 1.1: Reduce the cost of Federal inventory.

PBS’s execution of a Real Estate Investment and Savings Strategic Initiative in FY 2020 will be central to 

the delivery of real estate solutions to Federal agencies and provide savings to the American taxpayer. 

Through the full execution of this Initiative, there is the potential to reduce future spending on leased 

space by billions of dollars. GSA recognizes there are significant opportunities across the PBS portfolio 

where capital investment can be used to achieve long-term savings as well. PBS can achieve lower rental 

rates and reduce future rental of space payments significantly by replacing the large inventory of 

expiring leases with leases at a reduced square footage or longer term leases. Increasing the lease 

replacement rate and reducing the lease square footage will contribute to the reduction of obligations 

from the Federal Buildings Fund by billions of dollars over the duration of these lease contracts. More 

than half of GSA’s leases are expiring over the next six years, creating an opportunity to realize cost 

savings. In order to achieve the benefits in managing lease expirations, PBS has realigned internal 

resources to critical positions and will invest additional resources in future fiscal years to support the 

lease replacement effort. Reducing lease costs for agencies will allow them to dedicate resources to 

their missions by lowering their rental of space obligation to GSA. The Real Estate Investment and 

Savings Strategic Initiative creates a tremendous opportunity for reducing costs, saving taxpayer dollars, 

and fulfilling GSA’s mission. 

Key Strategies 

A. Strategic Capital Investments: 

a. Invest in major building improvements, new construction, and consolidation projects to 

accelerate the reduction of space by increasing space utilization and consolidation 

opportunities. 

b. Balance investments between new construction and existing assets to effectively 

manage our portfolio of Federal assets. 

c. Increase assets with positive funds from operations by continuing to identify and invest 
 U.S. General Services Administration Annual Performance Plan and Report 

18 

in core assets on the basis of Federal need, asset use, asset condition, and market value.

d. Dispose of underperforming Federal assets by working with agencies to develop and 

prioritize effective and efficient real property repositioning strategies; aggressively 

identify and dispose of underperforming Federal assets through expanded sales and out 

leases, auctions, and transfers to local entities; and partner with stakeholders to ensure 

disposal projects leave a positive impact on communities.

B. Lease Cost Avoidance Plan: 

a. Increase use of longer lease terms, where appropriate, as a mechanism for cost 

avoidance by pursuing all available strategies to increase cost savings, including 

maximizing lease terms. 

b. Increase use of the Automated Advanced Acquisition Program (AAAP) and GSA Leasing 

Support Services (GLS) for lease awards. AAAP is a multiple award lease procurement 

tool that allows potential suppliers to compete for Federal leases by submitting a single 

offer through an online portal. Increased use of the AAAP will reduce administrative cost 

and burden for Government and industry partners, while also using scale to deliver cost 

savings. GLS assists in delivering the best value in space solutions for the Government 

and taxpayers, leveraging private sector resources and expertise while reducing contract 

administration costs.

C. Resource optimization and investment 

a. Continue to realign internal resources to critical positions.

b. Invest additional resources to achieve the benefits in managing lease expirations. 

Goal Leader Daniel W. Mathews, Commissioner 

Public Buildings Service 

Contributing Programs ● Portfolio Management and 

Customer Engagement

● Leasing

● Real Property Disposal

● Construction and Acquisition

Strategic Objective 1.1 – FY 2018 Progress Update

GSA experienced mixed results for this strategic objective in FY 2018. Targets were met for real 

property disposals and donations. However, performance fell short for vacant space in inventory, leases 

negotiated at or below market value, and leased revenue after program administration. Driving savings 

for the Government, GSA reduced its owned and leased inventory by 3.4 million rentable square feet 

(RSF) and awarded 140 disposal projects on behalf of all Federal agencies totaling 4.94 million RSF. GSA 

will continue to work with OMB and customer agencies to improve asset utilization, review “Reduce the 

Footprint” plans to optimize agency space requirements, and dispose of underperforming assets on 

behalf of all agencies. Collectively, these strategies will enable GSA to realize substantial cost savings for 

agencies and taxpayers while streamlining the Federal real estate inventory. GSA has also implemented 

a comprehensive Lease Cost Avoidance Plan that prioritizes high-cost leases that are expiring within the 

next 6 years to gain the greatest savings for the Government. 
 U.S. General Services Administration Annual Performance Plan and Report 

19 

Performance Goal 1.1.1 - Reduce vacant space in inventory

Benefit to the Public Better utilization of Federal workspace reduces the Government’s 

operational costs. 

Performance 

Indicator Definition 

Vacant space in inventory

Reflects the vacant space in GSA's owned and leased space, 

without a customer agency paying rent. Specifically, it reports the 

total square feet of unoccupied space as a percentage of total 

square feet in GSA's owned and leased workspace inventory. GSA 

excludes space currently undergoing major renovation. Data source 

is Real Estate Across the United States (REXUS) inventory data set. 

Progress Update In FY 2018, GSA had 3.3% of owned and leased vacant space, below private 

sector vacant space rates, but missed the 3.0% target. While maintaining a 

certain level of vacant space in the portfolio is important for meeting 

customer needs and allowing for cost-effective housing strategies, GSA’s goal 

remains for 3.0% vacancy. In FY 2019, GSA will continue to work with 

customers to improve space utilization and develop projects to invest and 

optimize Federal space to decrease costly lease payments to reduce vacancy. 

Vacant space in inventory

Fiscal Year Target Results 

2015 3.2% 3.4% 

2016 3.2% 3.0% 

2017 3.2% 2.9% 

2018 3.0% 3.3% 

2019 3.0% N/A 

2020 3.0% N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 1.1.2 - Generate savings by negotiating 55% of leases at or below market rates

 (Agency Priority Goal) 

Benefit to the Public Negotiating leases at or below comparable market costs ensures GSA 

acquires Federal office space at the best value for the taxpayer. 

Performance Indicator 

Definition 

Percent of lease agreements negotiated at or below market rates 

 

Compares GSA leasing costs to private sector benchmarks for 

equivalent office space in major markets. The market lease rate is 

based on GSA’s Bullseye report, which combines rates from 

respected nationwide commercial real estate sources. The net 

present value of life-cycle leasing transaction costs are used to 

compare negotiated leases with market value leases. 

Progress Update During FY 2018, GSA negotiated 44% of leases (262 out of 590

transactions) at or below market rates. Office markets in many major 

areas of the United States are rising or peaking, making it difficult for 

GSA and other lessees to procure below-market rates. However, when 

measured by dollar volume, the total aggregated GSA lease costs were 

5% below market lease costs in FY 2018. This indicates that GSA was 

more successful negotiating larger leases at below-market rates. 

Percent of lease agreements negotiated at or below market rates 

Fiscal Year Target Results 

2013 baseline 55% 

2014 baseline 43% 

2015 baseline 59% 

2016 55% 49% 

2017 55% 48% 

2018 55% 44% 

2019 55% N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 1.1.3- Generate sufficient funds from operations to effectively operate GSA 

 leased buildings 

Benefit to the Public Achieving near break-even status in lease revenue available after program 

administration costs demonstrates that the leasing program can efficiently 

operate within the fees collected from customer agencies. Efficient 

delivery of leased workspace provides agencies greater flexibility in 

housing their workforce and operations and managing their resources. 

Performance Indicator 

Definition 

Percent of leased revenue available after administering the leasing 

program 

 

This performance indicator measures the leasing program’s revenue 

available after program administration costs and is calculated by 

taking the leased inventory revenue minus all expenses (excluding 

depreciation) associated with the inventory. If the measure is 

negative, costs were greater than revenues. 

Progress Update In FY 2018, GSA had -0.4% of lease revenue available after administering 

the leasing program, missing the target of 0% to 2%. Various issues 

contributed to this miss, including challenges related to timely and 

accurate customer billing and lessor payments, vacant space and related 

security expenses, lease formulation and buyout costs, and general and 

administrative expenses in excess of PBS fee revenue for small-dollar 

value leases. GSA will continue to work collaboratively across the 

organization to improve this metric and strive to balance expenses with 

revenue in FY 2019. 

Percent of leased revenue available after administering leasing program

Fiscal Year Target Results 

2013 0% to 2% 0.1% 

2014 0% to 2% -1.0% 

2015 0% to 2% -0.47% 

2016 0% to 2% -1.16% 

2017 0% to 2% -0.59% 

2018 0% to 2% -0.40% 

2019 0% to 2% N/A 

2020 0% to 2% N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 1.1.4 - Timely award of non-competitive sales and donations

Benefit to the Public Decreasing cycle times for non-competitive sales and donations increases 

the speed of disposing surplus Federal property and supports the 

management of a financially self-sustaining portfolio. Maintaining a 

viable, self-sustaining inventory of real properties ensures Federal 

agencies have appropriate facilities at best cost. 

Performance 

Indicator Definition 

Percent of non-competitive sales and donations awarded within 220 days

Reports the number of non-competitive sales and donations 

awarded within 220 days (minus hold times) as a percentage of 

total public sales. Hold time occurs when a disposal action 

experiences a delay because of pending legislation, 

environmental concerns, title problems, historical building 

reviews, or litigation. 

 

Non-competitive sales and donations include negotiated sales, 

public benefit conveyances, and Federal transfers. The time of 

award refers to the date the property is transferred to another 

agency, assigned to a sponsoring agency, or deeded to a public 

body. 

Progress Update GSA exceeded its FY 2018 target of 93% by awarding almost 97.5% of 

non-competitive sales and donations within 220 days. We are required to 

conduct screening for Federal, homeless, and public bodies, as well as 

have application submittal and review periods by sponsoring agencies. 

Percent of non-competitive sales and donations awarded within 220 days 

Fiscal Year Target Results 

2013 90% 88% 

2014 90% 93% 

2015 90% 98% 

2016 90% 98% 

2017 90% 90% 

2018 93% 97.5% 

2019 93% N/A 

2020 93% N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 1.1.5- Timely award of public sale properties

Benefit to the Public Decreasing the cycle time for public sales accelerates the disposal of 

surplus Federal properties and supports the management of a financially 

self-sustaining portfolio of Federal real property assets. Maintaining a 

viable, self-sustaining inventory of real property ensures Federal 

agencies have appropriate facilities at best cost. 

Performance Indicator 

Definition 

Percent of public sale properties awarded within 135 days

Reports the number of public sales awarded within 135 days 

(minus hold times) as a percentage of total public sales. Hold time 

occurs when the disposal experiences an unavoidable delay 

because of pending legislation, historical building reviews, or 

litigation. The time of award refers to the date the offer to

purchase is completed by GSA and the purchaser. 

Progress Update GSA met its FY 2018 target of 98% by awarding 98% of competitive

public sales within 135 days. The streamlined bidding process that GSA 

uses to market properties for disposal and aggressive marketing 

through online auctions continues to attract buyers in a timely manner, 

leading to GSA's success in exceeding the target and saving taxpayer 

dollars. 

Percent of public sale properties awarded within 135 days 

Fiscal Year Target Results 

2013 90% 98% 

2014 90% 94% 

2015 90% 97% 

2016 90% 98% 

2017 90% 98% 

2018 98% 98% 

2019 98% N/A 

2020 98% N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 1.1.6 - Generate revenue from GSA and FASTA disposals 

Benefit to the Public Executing disposals in an accelerated and effective manner reduces the 

Government’s inventory of civilian real property, returns underutilized 

and highly valuable real property to productive use, and ensures effective 

monetary value returned on the taxpayer’s investments. 

Performance Indicator 

Definition 

Gross sales revenue from GSA and FASTA disposals ($ millions)

The Federal Assets Sale and Transfers Act (FASTA) established the 

Public Buildings Reform Board (FASTA Board) to identify 

opportunities for the Federal Government to significantly reduce 

surplus civilian real property. The performance metric tracks the 

identification, by OMB and the GSA Administrator, of not fewer 

than five Federal civilian real properties that are not on the list of 

surplus or excess as of such date with a total fair market value of 

not less than $500M. 

Progress Update In FY 2018, without the benefit of a FASTA Board, GSA disposed of 140

properties (government-wide) and generated $123.2M in proceeds. This 

figure was higher than average due to the sale of two high value 

properties in Washington, DC, which generated over $70M. Without an 

existing Board, the FY 2019 target focuses solely on proceeds from the 

disposal of GSA assets. 

Gross sales revenue from GSA and FASTA disposals ($ millions)

(new metric in FY 2020)

Fiscal Year Target Results 

2016 N/A $28.8M 

2017 N/A $115.9M 

2018 N/A $123.2M 

2019 $15M N/A 

2020 $500M N/A 

Lead Office: Public Buildings Service 
 U.S. General Services Administration Annual Performance Plan and Report 

25 

______________________________________________________________________________

Strategic Objective 1.2: Establish GSA as a more effective provider of real estate services for 

all agencies.

GSA will support Federal agencies in fulfilling their mission by offering integrated turn-key services, 

providing high-quality facility and workspace solutions, and improving responsiveness and value to 

customers. Adding to ongoing efforts, GSA will focus on reducing cost without impacting service levels 

through increased use of standardized contracts and GSA procurement tools for building operations and 

maintenance contracting. To more fully assess customer experience, GSA will use an improved 

methodology to gauge the Federal customer's experience and satisfaction with services. Finally, GSA will 

provide staff with the tools to ensure delivery of high-quality services.

Key Strategies 

A. Increase the use of integrated, turn-key services for customers:

a. Provide more options and integrated offerings across the product and service life cycle 

for real estate management services, including consultation and mission-support 

services. 

B. Reduce the cost of operations and maintenance contracts without impacting service levels:

a. Build upon current efforts to save taxpayer money by improving operations and 

leveraging buying power through standardized contracts and GSA procurement tools. 

C. Improve responsiveness and value to customers:

a. Work with customer agencies to identify common goals and initiatives together; and

b. Strengthen customer relationships through a commitment to increase information 

sharing. 

D. Improve productivity by investing in our people: 

a. Continue to train staff, develop new tools, and improve processes to support strong 

teamwork and delivery of services. 

Goal Leader Daniel W. Mathews, Commissioner 

Public Buildings Service 

Contributing Programs ● Portfolio Management

● Real Property Disposal

● Construction and Acquisition

● Building Operations

● Repairs and Alterations

● GSA Customer Experience

 
 U.S. General Services Administration Annual Performance Plan and Report 

26 

Strategic Objective 1.2 – FY 2018 Progress Update

GSA is designating this objective as a focus area for improvement as GSA only met one of four annual 

performance targets. Historically low winter temperatures contributed to the lower than expected 

reduction in energy intensity (usage by square foot). GSA is part of a multi-agency team that is assessing 

energy savings targets that will be incorporated into E.O. 13834: Efficient Federal Operations. For 

metrics that are less susceptible to external factors, such as tenant satisfaction and cleaning and 

maintenance costs, GSA maintained steady performance relative to FY 2017 but did not achieve 

performance improvement goals set for FY 2018. GSA continued to meet its annual performance target 

for keeping capital projects on cost and within budget. 

Performance Goal 1.2.1 - Reduce total energy intensity

Benefit to the Public Responsible management of energy use in the Federal workspace lowers 

costs to the American people, provides greater availability of domestic 

energy resources for other purposes, and contributes to better air 

quality, energy independence, and mission assurance.

Performance 

Indicator Definition 

Energy intensity reduction (cumulative percent reduction in BTU per 

gross square foot, from baseline year of FY 2015) 

This measure assesses reduction in energy use intensity as 

originally mandated in the Energy Policy Act and updated by E.O. 

13693: GSA to reduce energy intensity as measured in British 

Thermal Units (BTU) per gross square foot by 25% by 2025 over 

the 2015 baseline established in the E.O. E.O. 13693 has been 

rescinded and replaced by E.O. 13834. Revised targets are being 

discussed as part of a multi-agency effort GSA is participating in. 

Revised targets will be incorporated into the E.O. once finalized. 

Progress Update GSA's ability to meet the 7.5% energy reduction measure in FY 2018 was 

impacted by weather anomalies, changes in building operations, and 

overtime utility usage. 

Energy intensity reduction 

(cumulative percent reduction in BTU per gross square foot, from 

baseline year of FY 2015) 

Fiscal Year Target Results 

2016 1.7% 3.78% 

2017 5.0% 6.41% 

2018 7.5% 5.41%

2019 0.25% increase over 

FY 2018 Results* N/A 

2020 0.25% increase over 

FY 2019 Results* N/A 

Lead Office: Public Buildings Service 

 * Highlights changes from the E.O. 13834 
 U.S. General Services Administration Annual Performance Plan and Report 

27 

 

Performance Goal 1.2.2 - Complete capital projects on schedule and on budget 

Benefit to the Public Delivering space when needed enables customer agencies to most 

effectively carry out their missions. GSA’s efficient delivery of new and 

renovated facilities reduces resource demands on customer agencies and 

translates into higher operational effectiveness and/or lower operational 

costs. 

Performance 

Indicator Definition

Percent of capital construction projects on schedule and on budget

 

Reports the percentage of prospectus level construction 

projects completed on schedule and budget, weighted by the 

contract value. Using an earned value technique, this measure 

assesses project performance on all prospectus level projects. 

The project weighting criteria is based on total current contract 

value, which places more emphasis on large, important projects 

that are critical to the GSA real estate portfolio. 

Progress Update A total of 88 projects valued at $3.2B were in construction or 

substantially complete in FY 2018. Of these, 24 projects reached 

substantial completion in FY 2018 valued at $435M. The 90% target was 

met despite challenging market conditions, uncertainty over potential 

price increases, and labor shortages in the construction market. 

The largest of the 24 projects finished in FY 2018 on schedule and 

budget include: 

 Bureau of Consumer Financial Protection Headquarters, DC, 

$129.2M 

 Mobile New Courthouse, AL, $72.6M 

 Charleston Department of State Building F, SC, $53.4M 

 Roybal Federal Building/Courthouse Courts Consolidation, CA, 

$17.3M 

 Phillip Burton Federal Building/Courthouse Infrastructure, CA, 

$15.1M 

 Sidney Yates Federal Building Exterior, DC, $15.1M 

 Woodlawn Computer Building 3rd Floor, MD, $14.7M 

PBS continues to provide project oversight, including planning risk 

reviews, integrated design reviews, construction peer reviews, and 

monitoring quarterly construction market trends. 
 U.S. General Services Administration Annual Performance Plan and Report 

28 

Percent of capital construction projects on schedule and on budget

Fiscal Year Target Results 

2013 Baseline 89% 

2014 Baseline 97% 

2015 90% 98% 

2016 90% 98% 

2017 90% 99% 

2018 90% 90% 

2019 85% N/A 

2020 85% N/A 

Lead Office: Public Buildings Service 

Performance Goal 1.2.3 - Improve tenant satisfaction with Government-owned and leased space.

Benefit to the Public Tenant Satisfaction is a good barometer for GSA to measure how well it is 

providing safe, reliable, productive and sustainable workplace 

environments that supports the business of the Federal Government at 

best value to the taxpayer. 

Performance 

Indicator Definition 

Tenant satisfaction with Government-owned and leased space – Facilities 

Management (FM) Index 

The FM Index comprises nine existing questions from the Tenant 

Satisfaction Survey related to the condition of the building and 

grounds, common areas, restrooms and elevators. Each question 

relates to areas of the building that GSA’s Facility Managers 

directly influence or control. 

To calculate the FM Index score, all of the “4” and “5” responses 

for those nine questions are added up and divided by the total 

number of responses. 

Progress Update PBS did not achieve the 63% target for the overall tenant satisfaction in FY 

2018. This is the second consecutive year where the target was not met and 

overall satisfaction score decreased. Through five years of item level 

analysis and an analysis of tenant comments, PBS concluded that tenants 

may use this survey to voice concerns regarding a multitude of issues that 

are outside the control of PBS. In FY 2018, PBS strategy for action planning 

shifted to focus on targeting facilities for improvements based on scores 

from individual questions. Survey results for FY 2018 support the 

effectiveness of this strategy. Item level scores targeted by action planning 
 U.S. General Services Administration Annual Performance Plan and Report 

29 

increased by an average of 5.7 percent in tenant satisfaction in FY 2018 

over the prior year. PBS has identified a similar strategy for action planning 

in FY 2019 from the FY 2018 results, while expanding on the parameters of 

the criteria in hopes of impacting national scores on a larger scale. 

Tenant satisfaction with Government-owned and -leased space 

Fiscal Year Target Results 

2013 83% 63% 

2014 75% 61% 

2015 63% 63% 

2016 65% 65% 

2017 67% 61% 

2018 63% 60% 

Lead Office: Public Buildings Service 

Tenant satisfaction with Government-owned and -leased space:

FM Index 

Fiscal Year Target Results 

2016 Baseline 69% 

2017 Baseline 70% 

2018 69% 69% 

2019 70% N/A 

2020 1% increase 

 over FY 2019 Results N/A 

Lead Office: Public Buildings Service 

Performance Goal 1.2.4 - Provide building cleaning and maintenance at competitive costs

Benefit to the Public This goal ensures customer agencies are paying competitive market 

rates for building services. When costs are competitive, agencies can put 

more of their resources towards meeting mission requirements. 

Performance 

Indicator Definition 

Percent of cleaning and maintenance costs within market range

GSA uses methodologies to track the percentage of cleaning 

and maintenance costs that are within market range, targeting 

80% of expenditures as the goal. Building Owners and 

Managers Association data and RS Means City Cost Data for 

office and office-like buildings are used to benchmark against 

private sector operations. 
 U.S. General Services Administration Annual Performance Plan and Report 

30 

Progress Update GSA did not meet its FY 2018 goal to keep 78% of cleaning and

maintenance costs within market range, ending the year at 73.6%. Due 

to inflation, the costs for both cleaning and maintenance increased. 

 Percent of cleaning and maintenance costs within market range 

Fiscal Year Target Results 

2013 N/A 72% 

2014 N/A 70% 

2015 80% 81% 

2016 80% 80.3% 

2017 80% 73.2% 

2018 78% 73.6% 

2019 80% N/A 

2020 80% N/A 

Lead Office: Public Buildings Service 

_________________________________________________________________ 

STRATEGIC GOAL 2 

Establish GSA as the premier provider of efficient and effective acquisition 

solutions across the Federal Government. 

GSA is committed to delivering service, innovation, and value through efficient operations, market 

expertise, and proactive partnerships with customer agencies and private sector vendors. Generating 

economies of scale is the cornerstone of our acquisition solutions, enabling us to negotiate better prices. 

Every day, we help customers make smart purchasing decisions to acquire the goods and services they 

need. 

GSA is dedicated to improving the contract vehicles, services, and products provided to Federal 

agencies, military, and state/local entities. We make access to the Government market easier, faster, 

and less costly to small and socio-economic businesses. We are achieving this by designing and 

delivering solutions that meet current needs and anticipate future requirements. 
 U.S. General Services Administration Annual Performance Plan and Report 

31 

_____________________________________________________________________________

Strategic Objective 2.1: Design and deliver GSA products and services that yield measurable 

savings while aligning with customer mission objectives and changing market demand. 

Using the purchasing power of the Federal Government, GSA reduces Federal agencies’ operating costs, 

enabling them to focus on their core missions to serve the public at best value. We are always looking 

for new ways to help these agencies make their purchases smarter and more efficient. This ability to 

achieve savings or avoid costs depends largely on standardizing requirements across Federal agencies 

that collectively leverages our purchasing power. Throughout GSA’s acquisition operations, our goal is to 

place customers at the center of our operations, develop common requirements across the 

Government, and increase the adoption of our solutions for agencies’ common needs. With these goals 

in mind, we have developed robust strategies to meet the current and future demands of our 

customers. 

In order to fully maximize the purchasing power of the Federal Government, we will provide market 

intelligence and acquisition expertise to the Federal marketplace. GSA is committed to bringing 

Government-wide contract spend into common categories to further capture economies of scale. This 

approach also creates economies of skill for Government as a whole when agencies can rely on GSA to 

deliver the right goods and services for their mission needs.

Key Strategies 

A. Better understand and anticipate customer needs by developing a robust and effective 

customer management approach:

a. Grow and refine the approach to strategic account management by:

1. Strengthening client relationships by serving as a trusted advisor;

2. Generating analytics and customer intelligence to inform decisions and provide our 

customers with meaningful recommendations; and 

3. Leveraging relationships and market intelligence to manage and customize GSA 

offerings. 

b. Mature our Voice of the Customer process, which ensures that we gather customer 

feedback to improve the effectiveness of our solutions, service delivery, and customer 

interactions. 

c. Enhance the customer experience through innovative customer experience mapping 

and usability testing of GSA systems and solutions. 

B. Improve market intelligence and optimize Federal buying power by leveraging commercial 

principles:

a. Mature and operationalize the internal use of business best practices, such as category 

management, to improve Government acquisition by pooling and sharing demand 

management, acquisition data, and supplier relationship management knowledge. 

Expanding use of data and business intelligence allows us to better understand, 

anticipate, and deliver customer requirements relative to specific markets and 

industries. This includes:

1. Leading a number of Government-wide categories and working with top 

purchasing agencies to understand their use of these products and services, 

enabling us to enhance the customer’s buying experience; and
 U.S. General Services Administration Annual Performance Plan and Report 

32 

2. Developing purchasing strategies so that customers find best value for items and 

services.

b. Increase agency adoption of assisted acquisition solutions for large and/or complex 

projects. The Assisted Acquisition Services program offers these value-added, 

customized, acquisition project management and financial management services for 

large and/or complex IT and professional services solutions. 

c. Develop strategies for procurements to streamline methods of awarding and 

administering less complex, smaller-dollar assisted acquisitions. 

Goal Leader Alan Thomas, Commissioner 

Federal Acquisition Service 

Contributing Programs ● Customer and Stakeholder Engagement 

● Assisted Acquisition Services 

● Information Technology Category 

● General Supplies and Services 

● Travel, Transportation, and Logistics 

● Office of Enterprise Strategy Management 

Strategic Objective 2.1 – FY 2018 Progress Update 

GSA continues to provide substantial savings to the Government through focused acquisition programs. 

Our programs have routinely generated more than $5B in annual savings. Program areas with the largest 

savings include the City Pair Program, IT Category products and services, and Assisted Acquisition 

Services. The customer loyalty score improved from FY 2017, and the FY 2018 performance target was 

achieved. In FY 2018, GSA developed customer loyalty action plans for each program based on FY 2017 

results and identified 45 initiatives where progress is tracked monthly. Moving forward, GSA will focus 

on developing technology interfaces to improve the ease of access to the products and services that we 

offer. 

Performance Goal 2.1.1 - Increase customer satisfaction 

Within our acquisition offerings, we know that loyal customers see value in our offerings and are 

likely to recommend our goods and services to others. The model we use to evaluate loyalty is built 

on decades of empirical research around factors that consistently influence loyalty intentions (e.g., 

likelihood to recommend) as well as behaviors (e.g., repurchase).

Benefit to the Public Assessing customer loyalty allows GSA to take action to improve program 

operations. The network of suppliers and vendors GSA leverages to provide 

customer agencies with goods and services is essential to service delivery. 

Through positive working relationships that are mutually beneficial for the 

supplier and customer, GSA is able to provide better service to customers, 

and ultimately to the public. 
 U.S. General Services Administration Annual Performance Plan and Report 

33 

Performance 

Indicator Definition 

“Customer Loyalty” Score

Tracks customer loyalty and ensures GSA’s Federal Acquisition 

Service is effective at meeting customer requirements. GSA 

identifies customers and develops a questionnaire to ensure 

program offices have actionable recommendations for areas of

improvement. The result represents the average score across three 

loyalty intention items for each respondent. Responses are rated on 

a 10-point scale where “1” equals “not at all likely” and “10” equals 

“very likely.” 

The three questions are: 

● How likely are you to recommend [Program Office] to others? 

● How likely are you to continue to use [Program Office] in the 

future? 

● How likely are you to consider [Program Office] as your first 

choice for [product/service]? 

Progress Update Overall, FAS-wide Customer Loyalty increased by 0.1 in FY 2018 from 7.4 (FY 

2017) to 7.5. Customer Satisfaction increased by 0.2 in FY 2018 from 7.4 (FY 

2017) to 7.6. The Net Promoter Score increased by four points, to 19 in FY 

2018. Consistent with FY 2014–FY 2017 trends, Value and Ease of Acquiring 

continue to be strong influencers (drivers) of Customer Loyalty. 

● FY 2018 "Perceived Value" score increased by 0.3 to 7.7. 

● FY 2018 “Ease of Acquiring” score increased by 0.2 to 7.3. (Multiple 

Award Schedule Reform initiatives have the potential to significantly 

impact this driver.) 

● FY 2018 “Acting in Best Interest” score of 7.7 was also a strong driver 

of Customer Loyalty.

Customers cited specific areas for improvement related to Ease of Acquiring, 

Value, and Best Interest Across FAS (more modern and user-centric

improvements needed). 

● FAS’s Customer Service score was very high this year, indicating that 

customer-facing employees are providing excellent service. 

● Customers feel frustrated when program changes do not reflect their 

experience with GSA or address issues they have reported. 

Addressing this sentiment, GSA seeks to give customers a direct voice 

in developing Action Plan initiatives, based on survey feedback.

● Minimum Order Quantities are a significant pain point for customers.

 
 U.S. General Services Administration Annual Performance Plan and Report 

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“Customer loyalty” score (10-point scale)

Fiscal Year Target Results 

2015 8.0 7.1 

2016 7.2 7.5 

2017 7.3 7.4 

2018 7.4 7.5 

2019 7.5 N/A 

2020 7.6 N/A 

Lead Office: Federal Acquisition Service 

 

Performance Goal 2.1.2 - Expand the use of GSA acquisition solutions across the Government

Federal agencies operate in a constrained budget environment and seek to maximize every dollar. 

When agency customers utilize FAS solutions they are able to purchase the goods and services 

needed to execute their mission at reduced cost, enabling them to focus resources on missioncritical activities. GSA generates additional savings for agencies by expanding the use of strategic 

buying practices using market intelligence and Government-wide collaboration.

Benefit to the Public Achieving this goal will result in greater savings, enabling customer agencies 

to meet mission-critical needs at a lower cost. 

Performance 

Indicator Definition: 

Acquisition program savings

Annual targets are developed by aggregating various programspecific targets across FAS, each with a specific methodology for 

calculating savings. The types of savings fall into one of three groups:

● Savings realized by utilizing FAS procurement vehicles compared

to commercial alternatives; 

● Savings realized through FAS offerings compared to other 

Government offerings; and 

● Savings returned to customers via bank refunds for using a FAS 

purchase, travel, or fleet card. 

Progress Update GSA exceeded the FY 2018 savings target of $5.22B, with total savings of 

$5.86B. Increased volume across the board for GSA acquisition programs has 

been the driving force for 14 of the 18 programs to exceed their individual 

savings targets. The City Pair Program contributed over 40% of the total 

savings with $2.48B in FY 2018 savings. Other programs that contributed 

significantly to the increase in savings include Travel and Transportation, IT 

Hardware, and Assisted Acquisition Services. 

 
 U.S. General Services Administration Annual Performance Plan and Report 

35 

Acquisition program savings (billions of $) 

Fiscal Year Target Results 

2015 N/A $5.17B 

2016 $5.19B $6.02B 

2017 $5.24B $5.17B 

2018 $5.22B $5.86B

2019 $5.90B N/A 

2020 $6.00B N/A 

Lead Office: Federal Acquisition Service

___________________________________________________________________________ 

Strategic Objective 2.2: Make it easier to do business with the Government by simplifying 

processes and streamlining access for our customers and suppliers. 

Every day, the work that we do allows our customer agencies to better focus on their missions. 

Partnership on all levels is critical to the success of GSA. Strong partnerships with other agencies and 

suppliers are essential, supporting decisions that create value and savings for our customers and the 

American public. Doing business with GSA must be an easy and reliable experience. We must 

continuously improve our processes and systems to make them as simple and streamlined as possible.

Key Strategies 

A. Modernize and streamline IT systems:

a. Simplify the acquisition experience for the supplier and customer communities:

1. Improve GSA and agency data access and quality so that acquisition and program 

leaders can make better procurement decisions; 

2. Empower GSA governance systems to streamline investments for better results; 

3. Increase the use of cost-effective strategic delivery of commercially readily available 

items by improving electronic integration with supply chain partners; and 

4. Assess the feasibility and opportunities for adoption of e-commerce commercial 

platforms. 

B. Simplify processes to make Multiple Award Schedule contract vehicles the Government’s 

vehicle of choice for commercial products, services, and solutions:

a. Provide our stakeholders with a Multiple Award Schedule program that addresses 

current market forces and provides Government with a streamlined, value-based 

contracting solution that continues to save time and money well into the future. We are 

transforming the program in four distinct areas:

1. Supplier engagement;

2. Customer engagement;

3. Competitive pricing; and 

4. Innovation.
 U.S. General Services Administration Annual Performance Plan and Report 

36 

Goal Leader Alan Thomas, Commissioner 

Federal Acquisition Service 

Contributing Programs ● FAS Systems Management 

● GSA IT 

● Multiple Award Schedule Program 

Management Office (PMO) 

● FAS Commissioner's Office 

● Policy and Compliance 

● Customer and Stakeholder Engagement 

● Office of Enterprise Strategy Management 

Strategic Objective 2.2 – FY 2018 Progress Update 

In consultation with OMB, GSA has designated this objective as a focus area for improvement. Although 

suppliers are sharing that GSA is communicating more effectively, supplier satisfaction scores increased 

only marginally in FY 2018 (from 3.61 to 3.69). Suppliers see GSA vehicles as an avenue to new markets 

but are frustrated when they cannot easily navigate the procurement process. To address this issue, GSA 

is consolidating Schedules to reduce the number of contracts that vendors and customer agencies are 

required to manage, lightening the overall administrative burden and streamlining the contracting 

process. 

Performance Goal 2.2.1 - Increase supplier satisfaction

The network of suppliers that GSA leverages to provide products and services are critical to our 

success in meeting the day-to-day needs of customer agencies and providing complex, innovative, 

and customized solutions. Creating a mutually beneficial operating environment between the 

Government and the supplier community allows us to offer a diverse set of products and services to 

the customer agencies at best value.

Benefit to the Public Strong supplier relationships make interactions between the Government 

and industry more efficient, transparent, and cost effective, creating lowercost services that maximize taxpayer dollars. When the Government and 

industry collaborate effectively, the highest-quality solutions can be 

delivered to meet customer agencies’ missions to the public. 
 U.S. General Services Administration Annual Performance Plan and Report 

37 

Performance 

Indicator Definition 

“Supplier satisfaction” score

The Supplier Relationship Management Survey is distributed annually 

to roughly 20,000 vendors with contracts covering a diverse portfolio 

of GSA contract vehicles. The sources for the vendors are e-Library, 

FPDS-NG, and GSA’s Salesforce database. 

Respondents are asked “Please consider all of your experiences 

interacting with [GSA program]. How satisfied are you?” Responses 

are rated on a 5-point scale where “1” equals “Very Dissatisfied” and 

“5” equals “Highly Satisfied.” The overall score represents the 

average of each portfolio’s average score. 

Progress Update Overall, FAS-wide Supplier Satisfaction increased by almost 0.1 in FY 2018 

from 3.61 (FY 2017) to 3.69. Consistent with FYs 2015 to 2017 trends, 

“Streamlining Processes” and “Improving Relationships” continue to be the 

primary themes in Supplier feedback. In FY 2018, however, suppliers put 

greater emphasis on their and GSA’s relationships with agency customers. 

Procurement Process and Contracting Expertise are the strongest influencers 

of Supplier Satisfaction. FY 2018 Procurement Process score increased by 

0.07 to 3.63, while FY 2018 Contracting Expertise score increased by 0.01 to 

3.89. 

Suppliers are sharing that GSA is communicating more effectively, and they 

see GSA vehicles as an avenue to new markets but are frustrated when they 

cannot easily navigate the procurement process. One way GSA is addressing 

this issue is by assessing opportunities to consolidate schedules, reducing 

burdens on industry. GSA has identified two areas of focus for the coming 

year in the hope of building on the FY 2018 results. First, GSA implemented a 

streamlined reporting structure designed to focus on “doing” rather than 

tracking and reporting. Second, GSA determined that many of the concerns 

expressed by industry are the direct result of GSA/FAS not providing effective 

baseline communication and training to our industry partners. With this in 

mind, GSA is reexamining current efforts and drawing on existing resources 

and expertise to reengage our partners with more meaningful 

communication and skill-level appropriate training.
 U.S. General Services Administration Annual Performance Plan and Report 

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“Supplier satisfaction” score (5-point scale)

Fiscal Year Target Results 

2015 N/A 3.59 

2016 N/A 3.70* 

2017 N/A 3.61* 

2018 3.80* 3.69* 

2019 3.73* N/A 

2020 3.76* N/A 

Lead Office: Federal Acquisition Service 

 *Metric methodology was revised in FY 2018. FY 2016, FY 2017, and FY 2018 results reflect the new 

methodology. FY 2019 and FY 2020 targets are based on the new methodology. The FY 2018 target 

was not recalculated and is based on prior-year methodology. 

______________________________________________________________________________ 

Strategic Objective 2.3: Enhance customer agency access to qualified small and socioeconomic businesses. 

GSA will collaborate with industry on Federal acquisition requirements and best practices promoting 

opportunities for small and socio-economic businesses. This encompasses all small businesses, including 

small disadvantaged businesses, women-owned small businesses, service-disabled veteran-owned small 

businesses, and businesses located in Historically Underutilized Business zones. 

GSA will continue to educate the acquisition workforce on the importance of meeting small business 

goals, ensuring our offerings promote a vibrant industrial and technological base. To advance small 

business outreach efforts, GSA will share information on prime and subcontracting Federal procurement 

opportunities, educate vendors on how to obtain a Multiple Award Schedule contract, and provide 

training on category management.

Key Strategies 

A. Educate small and socio-economic businesses on the opportunities available through the 

Multiple Award Schedule program: 

a. Find creative new ways to educate small and socio-economic businesses on the 

opportunities in the Federal marketplace available through GSA; 

b. Sponsor and deliver business development events; and 

c. Streamline outreach programs to promote efficiency and effectiveness. 

B. Expand access to small and socio-economic buying options across GSA contracts: 

a. Seek creative ways to improve the small business experience with GSA: 

1. Provide free advisory and training services; 

2. Maintain and enhance tools to access opportunities; 

3. Review rules and regulations that impact small businesses; 
 U.S. General Services Administration Annual Performance Plan and Report 

39 

4. Review subcontracting plans to maximize small business participation; 

5. Survey internal and external customers to improve customer satisfaction; and 

6. Develop special resources for our veterans in line with E.O. 13360. 

b. Conduct acquisition planning, internal procurement compliance reviews, and prime 

contractor/subcontractor compliance reviews. 

c. Enhance analytic, performance monitoring, and reporting capabilities. 

d. Partner with the acquisition workforce to maximize small business participation in 

subcontracting. 

Goal Leaders Charles Manger, Associate Administrator 

Office of Small Business Utilization 

Alan Thomas, Commissioner 

Federal Acquisition Service 

Contributing Programs ● Office of Small Business Utilization 

● Multiple Award Schedule PMO 

● Customer and Stakeholder Engagement 

Strategic Objective 2.3 – FY 2018 Progress Update

GSA continues to excel in meeting the prime small and socio-economic business targets set by the SBA. 

GSA received an “A,” “A+,” and “A” on SBA’s Small Business Scorecard for FYs 2015 through 2017, 

respectively. Final FY 2018 results for the small business indicators will be reported by the SBA in the 

spring of 2019. Preliminary results suggest that GSA has met the performance target for percent of GSA 

prime contracting dollars awarded to small business. In FY 2019, GSA will seek to improve the utilization 

of small businesses that operate and employ people in Historically Underutilized Business Zones 

(HUBZones) and maximize small business subcontracting opportunities. GSA continues to excel in 

providing small and disadvantaged business access to the Multiple Award Schedule (as measured by 

dollars awarded). In FY 2018, 38.4% of the business conducted through MAS was awarded to small and 

disadvantaged businesses, exceeding the target of 33%. 

Performance Goal 2.3.1 - Create more opportunities for small and socio-economic businesses

By increasing access to small and socio-economic businesses for GSA contract requirements and GSAmanaged Government-wide acquisition vehicles, GSA spurs job growth and drives the economy 

forward.

Benefit to the Public Small businesses power the economy forward and contracting with them is a 

win-win for the Government and the small business community. The 

Government receives great service at great value, while small businesses are 

provided opportunities to grow and create jobs. GSA offers opportunities to 

small businesses across the country through our contract vehicles, through 

the contracts we award for other agencies, and through subcontracting 

opportunities. 
 U.S. General Services Administration Annual Performance Plan and Report 

40 

Performance 

Indicator Definition 

(a) Percent of GSA contract dollars awarded to small business through prime 

contracting 

Tracks the percent of dollars awarded from GSA contracts to small 

business through prime contracting. GSA measures the overall 

percentage of eligible procurement dollars awarded to small business for 

prime contracting. 

(b) Percent of GSA contract dollars awarded through prime contracting to 

each socio-economic small business category (SDB / WOSB / SDVOSB / 

HUBZone) 

Tracks the percent of dollars awarded from GSA prime contracting by 

measuring the overall percentage of eligible procurement dollars 

awarded to each socio-economic category: 

● Small Disadvantaged Business (SDB), 

● Women-Owned Small Business (WOSB), 

● Service-Disabled Veteran Owned Small Business (SDVOSB), and 

● Historically Underutilized Business Zone (HUBZone) contracting, 

respectively. 

Targets reflect statutory requirements for fiscal year performance. 

 (c) Percent of GSA contract dollars awarded to small business through 

subcontracting 

Tracks the percent of dollars awarded from GSA contracts to small 

business through subcontracting. Subcontracting results also exclude 

mandatory sources, contracts not governed by the Federal Acquisition 

Regulation, and product service codes for leasing. 

(d) Percent of GSA contract dollars awarded through subcontracting to each 

socio-economic small business category (SDB / WOSB / SDVOSB / 

HUBZone) 

Tracks the percent of dollars awarded through subcontracting by 

measuring the overall percentage of eligible procurement dollars 

awarded to each socio-economic category: 

● SDB, 

● WOSB, 

● SDVOSB, and 

● HUBZone contracting, respectively. 

Targets reflect statutory requirements for fiscal year performance. 

 (e) Agency peer review score of Small Business Act compliance (SBA 

scorecard composite score) 

Represents the achieved score for compliance with section 15(k) of the 

Small Business Act. The scoring is weighted as 20% of the overall agency 

scorecard score, and is based on an annual peer review conducted across 

agencies in accordance with SBA’s standards. Twenty percent on the 
 U.S. General Services Administration Annual Performance Plan and Report 

41 

peer review represents a perfect score on SBA’s Small Business 

Scorecard. The result represents GSA’s achievement in relation to the 

20% target. Agencies can achieve scores above the target level if they 

show extraordinary performance. 

 (f) Small business diversification across industries (SBA scorecard composite 

score) 

Measures the diversification of small business contractors in each of the 

five small business categories within GSA’s top 100 NAICS codes. Scoring 

is based on SBA’s annual methodology, encompassing 10% of the overall 

agency score. The result represents GSA’s achievement in relation to the 

10% goal. Agencies can achieve scores above the target level if they show 

extraordinary performance. 

 (g) Percent of Multiple Award Schedule (MAS) business volume from small 

businesses 

Reports the percentage of MAS business volume attributed to small 

businesses each year by calculating the GSA Multiple Award Schedule 

total business volume in dollars attributed to small businesses and 

dividing by the total business volume. 

Progress Update Final FY 2018 results for the small business performance indicators will be 

reported by the SBA in the spring of 2019. Preliminary results suggest GSA has 

met the performance target for percent of prime contracting dollars awarded 

to small business. 

The GSA Multiple Award Schedule program is one of many methods by which 

GSA provides small and disadvantaged businesses access to the Federal 

marketplace. In FY 2018, 38.4% of the business conducted through MAS was 

awarded to small and disadvantaged businesses, exceeding the target of 33%.
 U.S. General Services Administration Annual Performance Plan and Report 

42 

 (a) Percent of GSA contract dollars awarded to small business through prime contracting

Fiscal Year Target Results 

2015 32.0% 44.2% 

2016 36.5% 39.2% 

2017 36.5% 42.7% 

2018 35.0% 38.8%* 

2019 30.0% N/A 

2020 TBD** N/A 

Lead Office: Office of Small Business Utilization 

 * Preliminary FY 2018 result. SBA will report final FY 2018 result in 2019. 

 ** Target will be set by the SBA in 2019. 

(b) Percent of GSA contract dollars awarded through prime contracting to each socioeconomic small business category (SDB / WOSB / SDVOSB / HUBZone) 

Fiscal Year Target Results 

2016 N/A 

SDB 21.64% 

WOSB 9.31% 

SDVOSB 5.32% 

HUBZone 3.89% 

2017 N/A 

SDB 22.60% 

WOSB 8.85% 

SDVOSB 6.45% 

HUBZone 4.95% 

2018 N/A 

 SDB 19.94% * 

 WOSB 8.55% * 

 SDVOSB 5.63% * 

 HUBZone 3.98% * 

2019 

 SDB 5% 

 WOSB 5% 

 SDVOSB 3% 

 HUBZone 3% 

N/A 

2020 

 SDB 5% 

 WOSB 5% 

 SDVOSB 3% 

 HUBZone 3% 

N/A 

Lead Office: Office of Small Business Utilization 

 * Preliminary FY 2018 results. SBA will report final FY 2018 results in 2019. 

 
 U.S. General Services Administration Annual Performance Plan and Report 

43 

 

(c) Percent of GSA contract dollars awarded to small business through subcontracting 

Fiscal Year Target Results 

2015 29.0% 26.3% 

2016 29.0% 26.3% 

2017 29.0% 42.4% 

2018 29.0% 25.5%* 

2019 25.5% N/A 

2020 TBD** N/A 

Lead Office: Office of Small Business Utilization 

 * Preliminary FY 2018 result. SBA will report final FY 2018 result in 2019. 

 ** Target will be set by the SBA in 2019.

(d) Percent of GSA contract dollars awarded through subcontracting to each socioeconomic small business category (SDB / WOSB / SDVOSB / HUBZone) 

Fiscal Year Target Results 

2016 N/A SDB 7.60% 

WOSB 5.90% 

SDVOSB 0.70% 

HUBZone 0.40% 

2017 N/A SDB 5.30% 

WOSB 6.20% 

SDVOSB 1.90% 

HUBZone 1.30% 

2018 N/A SDB 5.50% 

WOSB 4.40% 

SDVOSB 1.62% 

HUBZone 0.94% 

2019 SDB 5% 

WOSB 5% 

SDVOSB 3% 

HUBZone 3% 

N/A 

2020 SDB 5% 

 WOSB 5% 

SDVOSB 3% 

HUBZone 3% 

N/A 

Lead Office: Office of Small Business Utilization 

 * Preliminary FY 2018 results. SBA will report final FY 2018 result in 2019. 

 

 
 U.S. General Services Administration Annual Performance Plan and Report 

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(e) Agency peer review score of Small Business Act compliance 

(SBA scorecard composite score) 

Fiscal Year Target Results 

2017 20% 19.87% 

2018 20% TBD* 

2019 20% N/A 

2020 20% N/A 

Lead Office: Office of Small Business Utilization 

 * FY 2018 result is pending. SBA will report final FY 2018 result in 2019.

(f) Small business diversification across industries (SBA scorecard composite score)

Fiscal Year Target Results 

2017 10% 10.60% 

2018 10% TBD* 

2019 10% N/A 

2020 10% N/A 

Lead Office: Office of Small Business Utilization 

 * FY 2018 result is pending. SBA will report final FY 2018 result in 2019.

(g) Percent of small business MAS business volume

Fiscal Year Target Results 

2015 33.0% 38.3% 

2016 33.0% 37.4% 

2017 33.0% 39.7% 

2018 33.0% 38.4% 

2019 33.0% N/A 

2020 33.0% N/A 

Lead Office: Federal Acquisition Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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__________________________________________________________________ 

STRATEGIC GOAL 3 

Improve the way Federal agencies buy, build, and use technology. 

Technology is critical to how every agency accomplishes its mission and serves the public. It is at the 

core of running mission-support operations, safeguarding critical information, and analyzing program 

data for agency decision making. However, the Federal Government continues to struggle with legacy IT 

systems, IT modernization hurdles, and procurement challenges, as well as keeping pace with the 

public’s expectation for digital services. The Administration has seen these weaknesses as growth 

opportunities by establishing multiple Cross Agency Priority (CAP) goals focused on IT modernization, as 

outlined in the President’s Management Agenda (PMA): Modernizing Government for the 21st Century. 

The challenge of supporting, managing, and securing legacy systems significantly impacts the ability of 

Federal agencies to meet current and evolving mission requirements. GSA is supporting the PMA by 

leading modernization initiatives across the Government that provide agencies with modern IT solutions 

and advisory services that can transform business operations, reduce costs, improve agility, and increase 

security. An overarching goal of these initiatives is to shift more Federal IT spending from operations and 

maintenance of legacy systems to investment in modern platforms. 

The Federal IT procurement process includes requirements development and acquisition practices that 

can be burdensome and time-consuming. GSA is helping agencies adopt new approaches for buying 

commercial-off-the shelf and as-a-service solutions. We are leading the development of modular 

contracting approaches to enable agile and efficient development of complex new requirements. GSA’s 

goal is to assist agencies through the entire life cycle of procurement and system development. 

Keeping up with the public’s expectations for high-quality digital services has been challenging for the 

Government. The technology challenges facing Federal agencies and the direct impact on the public are 

well-known by leaders across Government and the private sector, leading to a heightened focus area for 

improvement by the Administration. GSA is supporting the PMA goal to improve the customer 

experience by providing Federal agencies with technologies and professional services that make 

customer interactions with public services simple, fast, and secure. 

In FY 2017, the Administration created the Office of American Innovation and the American Technology 

Council to focus attention and resources on this challenge. Today and in the future, GSA will be an 

essential partner with the Administration to deliver innovative solutions through IT CoEs, administration 

of the Technology Modernization Fund (TMF), IT Category products and services, and Technology 

Business Management (TBM) program management services. Our mix of talent and expertise in 

acquisition, technology, and service delivery -- combined with our Government-wide scope and scale -- 

makes us an agent of transformation in how Federal agencies buy, build, and use technology. 
 U.S. General Services Administration Annual Performance Plan and Report 

46 

_____________________________________________________________________________

Strategic Objective 3.1: Lead Government-wide technology modernization initiatives. 

The Report to the President on Federal IT Modernization (2017) and the PMA tasks agencies with 

achieving an array of critical goals involving enhanced IT security, greater use of cloud-based services, 

and the overall consolidation and modernization of IT networks. GSA is well positioned to help agencies 

meet these goals. GSA offers the full spectrum of technology assistance, including experts who assess 

system design, apply user-centered research and design techniques common in the private sector, and 

ensure fit with agency needs. 

GSA also offers platforms, services, and vehicles to assist agencies in acquiring and utilizing modern IT 

tools and practices. These include supporting agency transitions to cloud-based services; authentication 

and authorization services that seamlessly integrate with an agency’s public-facing systems; IT 

infrastructure modernization; cost-efficient and well-designed tools to communicate digitally with the 

public; and reducing reliance on legacy IT through administration of the TMF. These partnerships with 

industry and customer agencies foster trust and confidence in the goal of delivering modern and 

essential Government services. 

Key Strategies 

A. Enable the provision of mature solutions to migrate agency systems to the cloud: 

a. Work across multiple programs to help agencies move to the cloud in the least 

disruptive way. This includes: 

1. Issuing authorizations for cloud systems that are secure and continuously monitored; 

2. Making cloud systems available and easy to purchase; and 

3. Offering GSA technology talent to plan and implement cloud migrations that are 

efficient and cost-effective. 

B. Improve public access to Federal Government services through secure accounts and userfriendly tools: 

a. Offer the public secure and private online access to participating Government programs, 

with the goal of making Federal benefits, services and applications easier to access and 

more secure; 

b. Increase the cybersecurity of Federal IT systems hosting the public’s personally 

identifiable information; and 

c. Improve the security position of the Government by decreasing insider threats. 

C. Help agency partners modernize IT infrastructure and improve digital interactions: 

a. Ensure highly-skilled technologists are available to help agencies think through complex 

business problems and develop appropriate technical designs; 

b. Assist with deploying technology solutions through CoEs by leveraging private sector 

innovation and existing Government services to increase cloud adoption, consolidate 

data centers, optimize call centers, drive performance improvement, and improve 

customer experience; and 

c. Monitor customer satisfaction with innovation, technology consulting engagements, 

and acquisitions through 18F, the Presidential Innovation Fellows, Schedule 70, 

Government-wide Acquisition Contracts (GWAC), and the Enterprise Infrastructure 
 U.S. General Services Administration Annual Performance Plan and Report 

47 

Solution (EIS) program. 

D. Increase the rate of IT modernization through administration of the TMF: 

a. Provide technical assistance to the Technology Modernization Board to optimize project 

funding decisions; and 

b. Ensure the operational health of the TMF by assessing project performance and 

administering financing operations. 

Goal Leader 

Alan Thomas, Commissioner 

Federal Acquisition Service 

Allison Brigati, Deputy Administrator 

General Services Administration 

Contributing Programs 

● Technology Transformation Services 

● Information Technology Category 

● TMF PMO 

Strategic Objective 3.1 – FY 2018 Progress Update

GSA met its technology modernization goals for FY 2018. GSA assumed a strong leadership role in 

supporting the PMA throughout last fiscal year by standing up the TMF, developing and deploying 

technology-oriented Centers of Excellence (CoEs), and improving public digital interactions through 

Login.gov. GSA has also strengthened cloud adoption Government-wide through the FedRAMP program. 

In FY 2018, GSA stood up a TMF PMO to provide technical assistance to the Technology Modernization 

Board on funding decisions relating to IT transformation projects that reduce reliance on legacy 

operating systems through targeted investments in modern platforms. GSA will provide ongoing 

monitoring and review of projects, and work with agencies to ensure they repay the fund over time. In 

FY 2018, the Technology Modernization Board evaluated more than 30 proposals totaling over $400M in 

project costs and selected seven technology modernization projects to receive upfront funding. 

Throughout FY 2018, GSA prioritized the establishment of CoEs focused on increasing cloud adoption, 

consolidating data centers, optimizing call centers, and improving customer experience. During FY 2018, 

the CoEs were able to consolidate 21 data centers and partner with two customer agencies to improve 

their systems and operations. Furthermore, GSA has provided the public with simpler and more secure 

access to participating websites (e.g., USAJobs.gov) via a single login credential through the Login.gov 

program. The program was able to improve the online experience of three million users in FY 2018 who 

accessed Government websites. 

As a component of ongoing mission delivery, GSA is continuing to build a robust marketplace of cloud 

solutions that meet Federal security requirements by increasing the number of cloud authorizations 

through the FedRAMP program. All CFO Act agencies and more than 140 total agencies are participating 

in the FedRAMP program, enabling them to safely replace antiquated legacy IT systems with innovative 

cloud services to meet their critical mission needs. 

 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 3.1.1 - Provide agencies with cloud authorizations to modernize IT portfolios 

Benefit to the Public Modernized IT portfolios across the Government maximize taxpayer dollars 

by facilitating service delivery to the public that is more robust, secure, user 

friendly, and less burdensome to manage. When IT portfolios are 

modernized, the taxpayer dollar is maximized as modernization becomes the 

priority over maintenance of costly legacy alternatives with limited 

capabilities. 

Performance 

Indicator Definition 

Number of customer agency systems with FedRAMP authorizations 

(cumulative) 

Measures the efficiency and effectiveness of the FedRAMP program 

to balance security and speed of operationalizing cloud solutions for 

agency use. The indicator captures the cumulative volume of 

authorizations that are processed through the FedRAMP program. 

Progress Update GSA made significant progress in the number of new customer agency 

systems with FedRAMP authorizations in FY 2018, having added 11 new in 

the first half of the fiscal year and an additional 22 in the second half. All 24 

CFO Act agencies, and over 140 total agencies across all three branches of 

Government are participating in FedRAMP. There are currently over 60 cloud 

services in process with agencies for FedRAMP authorization 

Number of customer agency FedRAMP authorized systems (cumulative) 

Fiscal Year Target Results 

2015 N/A 39 

2016 N/A 72 

2017 N/A 88 

2018 110 121 

2019 145 N/A 

2020 165 N/A 

Lead Office: Federal Acquisition Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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______________________________________________________________________________ 

Strategic Objective 3.2: Drive more efficient and innovative Government procurement of 

technology services. 

The United States is a global leader in software and technology. Government must harness its national 

prowess in technology to not only drive economic growth, but to also improve internal business 

practices and better serve the public. The acquisition process is a key success factor in Government 

technology practices. 

The Government Accountability Office (GAO) and industry leaders have repeatedly recommended that 

Government “buy more and develop less” to improve technology outcomes. This requires Government 

to expand the training and use of IT acquisition cadres as outlined in the Federal Information Technology 

Acquisition Reform Act and remove barriers to agile acquisition of new technologies. GSA is committed 

to developing and sharing the talent, best practices, and policy improvements needed to bring about 

these changes. 

Multiple components of GSA play a role in driving this strategic objective. Our staff is identifying and 

incorporating best practices in technology acquisition and offering hands-on assistance to agencies at 

every stage of the process, including research and scoping, user research and prototype development, 

solicitation drafting and technical evaluation, post-award support, and technical assistance during 

implementation. The skills and knowledge developed in our organization will be intentionally shared and 

disseminated across the Federal workforce to improve overall management of IT acquisition and 

operations. 

Key Strategies 

A. Provide agencies with the ability to seamlessly acquire and manage compliant software, 

systems, and infrastructure at best value: 

a. Make buying and managing commercial off-the-shelf software-as-a-service easier for 

agencies by improving existing sales channels such as Schedule 70;

b. Further develop and improve Schedule 70 to provide Federal, state, and local customer 

agencies the tools and expertise needed to shorten procurement cycles, ensure 

compliance, and obtain the best value for innovative technology products, services, and 

solutions, including buying and managing commercial, off-the-shelf software-as-aservice; and 

c. Efficiently and effectively transition agency telecommunications and IT infrastructure to 

the Enterprise Infrastructure Solution (EIS) contract. Utilizing the EIS contract creates a 

simplified process for agencies to acquire integrated and streamlined solutions while 

taking advantage of cost reductions through aggregated Government-wide demand. 

B. Assist agency customers in successfully executing a modular contracting approach to enable 

agile and efficient development of new complex requirements: 

a. Use our leadership in technology and acquisition to work with agencies to introduce 

agile development methods into technology procurements, build the necessary skills to 

solicit and manage technology projects with agile suppliers, and, if needed, guide 

agency leads through the duration of the project; and 

b. Continue to procure high-quality, lower-risk products at best value. 
 U.S. General Services Administration Annual Performance Plan and Report 

50 

Goal Leader Alan Thomas, Commissioner 

Federal Acquisition Service 

Contributing Programs ● Information Technology Category 

● Technology Transformation Services 

● Assisted Acquisition Services 

Strategic Objective 3.2 – FY 2018 Progress Update

Noteworthy progress has been achieved in driving efficient and innovative Government procurement of 

technology services, exemplified by substantial growth in assisted technology acquisition business 

volumes. For example, GSA significantly exceeded its FY 2018 target for assisted technology acquisition 

volume, meeting strong agency customer demand for our high-quality solutions. 

High-volume and innovative contracting solutions like the EIS, Veterans Technology Services 2, Alliant 2, 

and Alliant Small Business 2 contracts were awarded in FY 2017 and FY 2018. These offerings provide 

agencies with a complete solution to modernize IT networks and retire legacy infrastructure, enabling 

them to meet modernization goals established in the PMA. 

To ensure that agencies are able to procure high-quality, timely technology services, GSA will further 

improve Schedule 70 to provide Federal, State, and local customer agencies with the tools and expertise 

to shorten procurement cycles, ensure compliance, and obtain the best value for innovative technology 

solutions. 

Performance Goal 3.2.1 - Improve agency technology procurement capabilities through 

 acquisition consulting

GSA provides value to agencies through assisted acquisition solutions that address the full life cycle 

of complex IT build and delivery. This includes acquisition consulting services to agencies to 

augment their support staff and obtain high-quality procurement and vendor management. This 

goal measures the customer satisfaction with these services, highlighting our ability to be a go-to 

partner for complex technology procurements across the Government.

Benefit to the Public GSA works with agencies to ensure that IT systems have the best possible 

system design and user-centered development techniques. We collaborate 

with agency IT staff, business programs, and acquisition shops to ensure 

exceptional financial, contracting, and legal counsel for our acquisitions. 

Taking these steps reduces risk and provides best value solutions to agency 

customers and the taxpayer.
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance 

Indicator Definition 

(a) Volume of assisted technology acquisitions ($ value) 

Annual dollar volume of assisted acquisitions for the Assisted 

Acquisition Services program and TTS/Assisted Technology Acquisitions 

program. Dollar volume is the ceiling amount for new awards. 

(b) Volume of assisted technology acquisitions (# acquisitions) 

Annual number of assisted acquisitions for the Assisted Acquisition 

Service program and TTS/Assisted Technology Acquisitions program. 

Progress Update While GSA achieved its FY 2018 financial target, it did not meet the target 

for the number of assisted technology acquisitions conducted. This is 

because while GSA awarded fewer projects, it awarded contracts that were 

more complex and for larger dollar amounts than in the past. Based on the 

growth experienced throughout FY 2018, GSA re-evaluated projected 

growth and increased the Business Volume targets for FY 2019 and FY 2020. 

(a) Volume of assisted technology acquisitions (billions of $) 

Fiscal Year Target Results 

2016 N/A $1.54B 

2017 N/A $3.68B 

2018 $4.29B $7.47B 

2019 $7.61B N/A 

2020 $7.77B N/A 

Lead Office: Federal Acquisition Service 

(b) Volume of assisted technology acquisitions 

(number of acquisitions) 

Fiscal Year Target Results 

2016 N/A 333 

2017 N/A 422 

2018 503 354 

2019 364 N/A 

2020 382 N/A 

Lead Office: Federal Acquisition Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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___________________________________________________________________________ 

Strategic Objective 3.3: Lead implementation of technical standards, policies, and strategies.

Modernizing Government IT will require the Federal Government to rethink how it builds and 

implements technical standards, policies, and strategies. Federal agencies, the private sector, and other 

stakeholders need to be actively involved throughout the entire policy development life cycle, to ensure 

the best outcomes. 

Our core principles: 

● Be a trusted Government partner — Align our mission with that of our Government clients, to 

continuously improve the effectiveness of Federal IT; 

● Craft long-term solutions — Foster a culture and history of finding smart IT solutions for complex 

and challenging cross-agency issues; 

● Leverage Federal scale — Maximize the purchasing and processing power of the Federal 

Government to enable faster, cost-effective adoption of new technologies; and 

● Champion the CIO — Work with agency CIOs to understand, support, and address their most 

challenging issues. 

GSA supports CIOs, IT procurement personnel, and other decision makers with services, expertise, and 

solutions to address a broad spectrum of Federal IT challenges. We also serve as the hub for 

Government-wide communities of practice, supporting cross-agency collaboration to solve 

Government’s most pressing IT challenges. These strategies improve the Federal IT ecosystem, create 

efficiencies, and reduce burden across Government. 

Key Strategies

A. Assist agencies in understanding and optimizing the value of IT investments, and enable 

value-driven conversations among agency IT, financial, and business leaders.

B. Support agencies’ implementation of strong network authentication for employees and 

contractors to ensure the right individual can access the right resource, at the right time, for 

the right reason.

C. Support agencies’ implementation of cost-effective and efficient IT infrastructure solutions, 

including data center optimization and cloud computing.

D. Serve as the Federal Government’s principal coordinator for IT accessibility to help Federal 

agencies adopt universal design principles, and make IT products and services accessible to 

all.

E. Support the Government’s web presence with trusted internet transactions, and monitor 

and report on policy compliance and best practices for Federal websites and digital services.

Goal Leader Jessica Salmoiraghi, Associate Administrator 

 Office of Government-wide Policy 

Contributing Program Office of Information Integrity and Access 
 U.S. General Services Administration Annual Performance Plan and Report 

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Strategic Objective 3.3 – FY 2018 Progress Update

GSA continues to assist agencies in achieving Government-wide milestones for IT infrastructure 

optimization and access management, meeting all performance goals in FY 2018. Working alongside 

agencies, GSA gains insight into agencies’ IT priorities through communities of practice, and provides 

playbooks, guidance, and technical assistance to help agencies implement solutions. Strong progress 

continues in facilitating the provision of standardized secure credentials for Government employees and 

contractors that access Government networks, as evidenced by FY 2018 data center closures that 

exceeded the target. 

Performance Goal 3.3.1 - Provide agencies with the tools and resources to implement IT standards 

and policies. 

GSA is committed to helping agencies understand and comply with Federal IT policies and 

standards. This goal captures our ability to help agencies optimize data centers, and ensure that 

cybersecurity threats related to identity management are mitigated. 

Benefit to the Public Clear IT standards and policies result in increased policy compliance, 

enabling agencies to deliver more effective and efficient services, resulting 

in Government-wide cost savings and better access to Government 

information and services for the public. 

Performance 

Indicator Definition 

(a) Percent increase of Government-wide tiered data center closures 

(cumulative) 

Captures the optimization of Federal data centers by including 

existing data centers that are consolidated or closed in the 

following priority order: 

1. Transitioning to cloud services; 

2. Migrating to inter-agency shared services or co-located 

data centers; and 

3. Migrating to more optimized data centers within the 

agency’s data center inventory. 

The cumulative percentage represents the overall improvement in

effectively managing data centers Government-wide. 

(b) Percent of government employees and contractors that log onto 

government networks with a standardized, secure credential. 

Mitigates risk of network breach by eliminating weak passwords 

and enforcing multi-factor authentication. The measure is based on 

the FY 2018 FISMA PROTECT metric 2.4.1 and aligns with the NIST 

Cybersecurity Framework. 
 U.S. General Services Administration Annual Performance Plan and Report 

54 

Progress Update GSA continues to support the optimization and consolidation of Federal data 

centers. At the conclusion of FY 2018, there was an 8.95% increase in data 

center closures, exceeding the 6% target. In FY 2018 second quarter (Q2), 

some tiered data centers were reclassified as non-tiered. If these data 

centers had not been reclassified, the end of year actual would have been 

11.34%. 

GSA’s Federal Identity, Credential, and Access Management (ICAM) program 

continues to make progress helping agencies meet key cybersecurity 

milestones, including those supporting secure network access. The PMA and 

CAP Goals, released in Q2, highlighted ICAM in the Limit Personnel Access

strategy. The performance indicator pivoted slightly to emphasize privileged 

user access, and set a target of 98% for FY 2020. Performance.gov reports 

shifted to the new metric and GSA achieved 96% in Q3, an increase of 3% 

from Q2. 

(a) Percent increase of Government-wide tiered data center closures 

(cumulative) 

Fiscal Year Target Results 

2015 N/A N/A 

2016 N/A N/A 

2017 N/A 3.55% 

2018 6.0% 8.95%

2019 10.0% N/A 

2020 14.0% N/A 

Lead Office: Office of Government-wide Policy 

 

(b) Percent of government employees and contractors that log onto 

government networks with a standardized, secure credential. 

Fiscal Year Target Results 

2015 N/A N/A 

2016 N/A 72% 

2017 N/A 81% 

2018 83% 96% 

2019 95% N/A 

2020 98% N/A 

Lead Offices: Office of Government-wide Policy and Federal Acquisition Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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_________________________________________________________________

STRATEGIC GOAL 4 

Design and deliver expanded shared services within GSA and across the Federal 

Government to improve performance and save taxpayer money. 

Mission-support services across Government are challenged by inefficiencies and manual processes, 

duplicative investments in technology and capabilities, and an inability to consistently modernize 

technology and business practices. For example, Government-wide benchmarking data shows some 

agencies are entering nearly all of their vendor invoices manually and paying nearly 100 times more per 

processed invoice than the standard for electronic invoicing. Similar examples can be cited in each of the 

key support functions at Federal agencies: human capital, IT support, finance, acquisition, and building 

services. Inefficiencies take valuable time and resources away from agency missions, impeding the 

Government’s ability to deliver on public priorities. GSA is able to fundamentally change the way 

Government conducts mission-support services by designing and delivering expanded shared services. 

 

“Shared services” is an industry-leading practice with proven success in consolidating processes, 

systems, and workforce to reduce costs and deliver common services in a standard way across complex 

enterprises. This practice also creates opportunities to share specialists and time-tested approaches 

across agencies. Helping agencies share common services and technology today will mean long-term 

cost savings for taxpayers, and a Government that is leaner and better equipped. GAO has stated that 

“moving to shared services can save the Federal Government billions of dollars as well as reduce 

duplicative efforts, decrease systems upgrades, and free up resources for mission-critical activities.” But 

the Federal Government’s efforts to establish and scale up shared services have yielded mixed results, at 

best. 

 

At GSA, our mission is to provide services to agencies. Our robust supplier relationships and access to 

leading practices in industry for all support services allow GSA to bring innovative, proven solutions to 

the Federal Government. GSA’s role in Government-wide policy implementation and data analysis is also 

a key factor in helping agencies overcome barriers to improving their own mission-support operations 

and adopting shared services. To coordinate these efforts and fully realize our potential, we must 

develop stronger organizational capabilities to understand customer demand, work with industry to 

provide efficient and effective supply, and incorporate services from across GSA to satisfy the needs of 

Federal agencies. 

___________________________________________________________________________ 

Strategic Objective 4.1: Develop new organizational capabilities to understand customer 

demand and deliver integrated offerings to support common business processes 

Government-wide. 

The first three goals in this strategic plan focus on advancing and improving GSA’s capabilities in real 

estate, acquisition, and technology to better support agency missions Government-wide. However, our 

ability to integrate those capabilities into comprehensive life-cycle solutions will create the greatest 

value for agencies and the American people. To accomplish this goal, GSA will collaborate with 

customers and improve how our components coordinate to seamlessly meet customer needs. 
 U.S. General Services Administration Annual Performance Plan and Report 

56 

We will expand our core capabilities and adapt to market demands. Scaling and adaptability are critical 

to addressing evolving customer needs. Strategic partnership with industry will help create an agile, 

responsive delivery model. We will also establish a specific business analysis function to conduct a 

variety of analyses to benefit customers, such as developing business cases, determining optimal 

bundles of products and services, and researching innovative methods to reduce costs and strengthen 

service quality. 

We will improve our offerings by using performance evaluation and market competition to incentivize 

our industry partners to deliver high-quality service. Our service processes and pricing will be 

transparent so our customers can hold us accountable for delivering services that achieve both quality 

and cost expectations. 

Further, GSA will provide leadership for and support of the PMA by assisting with the establishment of a 

strategic Government-wide framework for improving the effectiveness and efficiency of administrative 

services. To support implementation of this goal, the Administration established GSA as a co-lead for the 

Sharing Quality Services CAP goal. Among other responsibilities, GSA is expected to help expand the 

number and use of common solutions across Government to reduce duplication and costs. This 

approach will also rely on standardized administrative operations and core performance metrics to 

improve the quality and delivery of shared services. 

Key Strategies 

A. Strengthen customer interface capabilities by establishing a data-driven approach to 

customer engagement and standardizing intake processes to identify and address customer 

needs: 

a. Develop a systematic, repeatable, and understandable approach to working with 

customers; 

b. Leverage customer relationships to cultivate deep expertise and apply data-validated 

solutions to address customer problems across the Federal Government; and 

c. Monitor customer satisfaction at every point in the life cycle and hold employees 

accountable for customer relationship management. 

B. Develop a comprehensive, integrated menu of options for GSA’s product and service 

offerings: 

a. Conduct high-level inventory of existing products and services and create a user friendly 

catalogue of GSA offerings; and 

b. Recommend service packages (bundles) leveraging the catalogue to meet customer 

needs, with a focus on small agency lifecycle services as an early bundle. 

C. Develop organizational capabilities to provide products and services, tools, methodologies, 

and metrics to deliver shared services: 

a. Grow the talent and skill sets to establish capabilities, including business process 

engineers, process improvement specialists, data specialists, technologists, and experts 

in large and complex project management; 

b. Embed a culture that encourages performance, continual improvement, and 

entrepreneurship to deliver value to customers; 

c. Use our technology expertise to deploy interoperable, secure, effective, and efficient 

technology solutions; and 
 U.S. General Services Administration Annual Performance Plan and Report 

57 

d. Work with stakeholders in the executive branch and Congress to identify financial 

mechanisms that help agencies make the investments needed for technical upgrades, 

capability development and, where needed, transition to a shared services provider. 

D. Expand the number and use of common solutions to reduce duplication and cost: 

a. Establish and operate a Service Management Office (SMO) to plan and deliver Human 

Capital shared mission-support services to customer agencies; and 

b. Assess opportunities for common solutions within core support operations across the 

Government, including: human resources, financial management, procurement, grants 

management, operations support, and IT. 

Goal Leaders 

Alan Thomas, Commissioner 

Federal Acquisition Service 

Daniel W. Mathews, Commissioner 

Public Buildings Service 

Anahita Reilly, Chief Customer Officer 

Office of Customer Experience 

Strategic Objective 4.1 – FY 2018 Progress Update

GSA met its goals for designing and delivering high-quality common solutions that satisfy agency 

customer demands. For example, GSA laid the groundwork to establish an SMO to plan and deliver 

select shared common solutions across the Government. The SMO will support the mission of the PMA 

and the implementation of the goals and milestones of the CAP Goal Sharing Quality Services, including 

assessments of expanding common solutions for human resources, financial management, 

procurement, grants management, operations support, and IT. 

Through GSA’s Fleet Program, the agency has taken major strides in FY 2018 to expand common 

solutions for motor vehicle management. The PMA charges the Federal Government with improving 

mission-support services by consolidating Federal fleet management, which will reduce taxpayer costs 

by introducing efficiencies and economies of scale. To achieve these objectives, GSA conducted fleet 

studies at six agencies in FY 2018, totaling more than 75,000 vehicles, to identify specific opportunities 

to improve fleet management. The studies included analysis of operational, maintenance, and inventory 

data to assess whether centrally leasing and managing motor vehicles is more cost-effective than 

individual agency ownership and management of vehicles. Five additional agency fleet studies will be 

undertaken in FY 2019. The remaining four agencies have a total of about 2,500 vehicles to be 

considered for consolidation. 
 U.S. General Services Administration Annual Performance Plan and Report 

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Performance Goal 4.1.1 – Expansion of centralized services (Agency Priority Goal)

GSA will develop and expand common solutions and service offerings for mission-support services, 

driving more efficient and effective processes that help agencies maximize mission delivery. 

Specifically, to eliminate redundancies and reduce Government-wide fleet costs, GSA’s Fleet 

Program will partner with agencies to study their vehicle inventories to identify savings and 

efficiency opportunities, reviewing 25,000 vehicles annually in FY 2018 and FY 2019 and 

consolidating 500 and 5,000 vehicles, respectively, pending study results.

Benefit to the Public Centralized fleet management functions provide agencies with savings and 

benefits of a shared fleet management service. 

Performance Indicator 

Definition 

Number of agency-owned (non-GSA) vehicles studied and consolidated by 

GSA 

Vehicle consolidations allow agencies to convert their agencyowned vehicles into GSA’s full life-cycle fleet leasing service. 

Consolidating agency managed vehicles into the GSA Fleet 

eliminates redundancies and reduces costs to manage motor 

vehicle operations. The metrics capture the number of vehicles 

that GSA plans to assess and consolidate over the next 2 years 

from multiple customer agencies. 

Progress Update Studies were completed for the Air Force, Army, Army Corps of Engineers, 

U.S. Department of Energy, and U.S. Department of Veterans Affairs. 

Interviews and site visits for the U.S. Department of Homeland Security 

are ongoing. 

GSA exceeded its performance target of 25,000 by studying 76,238 

vehicles in FY 2018. The consolidation target of 500 was also exceeded, as 

GSA consolidated 1,790 vehicles in FY 2018. 

Number of agency-owned (non-GSA) vehicles studied and consolidated by GSA 

(Studied / Consolidated) 

Fiscal Year Target Results 

2016 N/A studied 

N/A consolidated 

N/A studied 

1,136 consolidated 

2017 N/A studied 

N/A consolidated 

N/A studied 

911 consolidated 

2018 25,000 studied 

500 consolidated 

76,238 studied 

1,790 consolidated 

2019 100,000 studied 

5,000 consolidated N/A 

2020 5,000 consolidated N/A 

Lead Office: Federal Acquisition Service 
 U.S. General Services Administration Annual Performance Plan and Report 

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_____________________________________________________________________________

Strategic Objective 4.2: Promote adoption of shared services by agencies through policy, 

guidance, and benchmarking.

GSA plays a central role in the development of policy, best practices, and strategic planning for missionsupport services across Government. GSA’s Shared Solutions and Performance Improvement (SSPI) 

office has been a leader in educating and helping Government agencies understand the cost and 

operational benefits of shared services. SSPI has also analyzed the challenges in the current shared 

service ecosystem and recommended strategies to mitigate risks. SSPI will continue to work with 

agencies to promote standardization and implement best practices to facilitate agency transitions to 

shared services operating models. 

Key Strategies 

A. Establish and lead cross-agency council(s) to facilitate the sharing of lessons learned, advise 

GSA leadership on possible shared services, and participate in development of best practices 

guidance. 

B. Help agencies and the Government to identify sharing opportunities and propose adoption 

strategies: 

a. Manage and coordinate the cross-functional development of standard capabilities for 

mission-support functions where appropriate; and 

b. Conduct periodic assessments of agencies’ performance of mission-support functions 

against Government-wide standards and peers to inform policy decisions, opportunities 

for mission-support improvement, or mitigation of risks. 

C. Assist agencies with their preparation for successful migration to shared 

services/modernization efforts: 

a. Leverage the experience of existing Federal communities of practice and industry to 

revise the SSPI playbook (i.e., best practices), incorporating the various delivery models 

and assisting agencies with migrations. 

b. Manage the governance process and adherence to the FIBF templates and delivery of 

actionable recommendations. 

Goal Leader Jessica Salmoiraghi, Associate Administrator 

Office of Government-wide Policy 

Contributing Programs Shared Solutions and Performance 

Improvement (SSPI) Office 

 
 U.S. General Services Administration Annual Performance Plan and Report 

60 

Strategic Objective 4.2 – FY 2018 Progress Update

GSA met all the performance goals in this strategic objective by taking a leadership role in establishing 

Government-wide milestones for shared services in alignment with the Sharing Quality Services CAP 

goal. Some of the Government-wide initiatives include leading a comprehensive readiness assessment of 

agencies’ maturity with respect to adopting and/or moving to a shared or common service, establishing 

Government-wide shared services standards and frameworks and a Government-wide award for a 

software-as-a-service (SaaS) payroll solution. All of these initiatives are progressing according to plan, 

including GSA’s award of the NewPay SaaS. 

 

Performance Goal 4.2.1 - Reduce barriers to entry to facilitate easier adoption of shared services

Benefit to the Public Making it easier to move to shared services will help eliminate redundancy, 

mitigate risk, and consolidate buying power to reduce costs. 

Performance 

Indicator Definition 

(a) Number of CFO act agency services using GSA’s M3 tools and best 

practices to assess readiness for shared services 

GSA’s Office of Shared Solutions and Performance Improvement (OSSPI) 

used the M3 Framework to help CFO Act agency services achieve 

successful outcomes and reduce risk during administrative system 

modernizations and migrations. M3 provided guidance, tools, and 

templates -- based on leading practices -- to help CFO Act agency 

customers improve the likelihood of successful outcomes. 

(b) Number of business lines with completed business standards and data 

elements per the Federal Integrated Business Framework (FIBF)

Strategy 1 of the Sharing Quality Services CAP Goal describes 

government-wide standardization activities using the FIBF. Standards 

Leads complete the FIBF with their communities and participate in a 

cross-functional governance process as defined in the CAP goal. GSA 

manages the governance process, adherence to the standard templates 

within the FIBF and measures how many actionable recommendations 

toward quality control are delivered. 

Progress Update The strategic objective is to promote adoption of shared services by 

agencies through policy, guidance, and benchmarking. GSA exceeded the 

goals of this strategic objective by taking a leadership role in establishing 

Government-wide milestones for shared services in alignment with the 

Sharing Quality Services CAP goal. Some of the FY 2018 Government-wide 

initiatives included leading a comprehensive readiness assessment of 

agencies maturity with respect to adopting and/or moving to shared or 

common services, establishing Government-wide shared services standards 

and frameworks, and awarding a Government-wide contract for a softwareas-a service payroll solution (NewPay). Each of these initiatives has 

progressed according to plan. The readiness assessment results indicate how 

agencies align with Government-wide standards within specific service 
 U.S. General Services Administration Annual Performance Plan and Report 

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areas, informing the demand timeline for shared services.

OSSPI engaged with 31 agency services that used M3 tools as a part of their 

mission-support modernization/migration efforts over the course of FY 

2018. To ensure those 31 entities stay current with what is occurring in the 

market and with other agencies, over 1,500 updates were made to the tools 

on the www.ussm.gov website. The M3 Playbook was used by GSA in its HR 

Links Modernization and is being used by the team supporting the transition 

of OPM transactional functions to GSA and the NewPay implementation. 

OSSPI led the first PMC Readiness Assessment for the 24 CFO Act agencies 

across nine functional areas (e.g., financial management, travel, and human 

capital). OSSPI analyzed the results and shared this information with 

appropriate officials for use in strategic planning. A second PMC Readiness 

Assessment in different functional areas is planned for FY 2019. 

 

For future success, several challenges will need to be addressed to foster the 

adoption of shared services, including aligning resources to best support 

management priorities and agencies taking the steps to adopt shared 

services. 

Number of agencies using GSA’s M3 Tools to assess readiness for shared services

Fiscal Year Target Results 

2017 N/A 4 

2018 6 31 

2019 35 N/A 

2020 35 N/A 

Lead Office: Office of Government-wide Policy 

Number of business lines with completed business standards and data elements per 

the Federal Integrated Business Framework (FIBF)

Fiscal Year Target Results 

2017 N/A N/A 

2018 N/A N/A 

2019 3 TBD 

2020 5 TBD 

Lead Office: Office of Government-wide Policy 
 U.S. General Services Administration Annual Performance Plan and Report 

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________________________________________________________________________________ 

Strategic Objective 4.3: Support the overall mission of GSA by investing in our employees and 

modeling how we deliver internal support services, while providing policy guidance across 

Government. 

To strengthen GSA’s ability to “lead by example” in Government management, it is important that GSA’s 

support services be among the most efficient and effective in Government. GSA’s CXO functions 

(acquisition, finance, human capital, IT) will seek to build on recent performance gains, accelerating 

reforms to streamline operations and align with customer needs. GSA prides itself on understanding 

how business operations benefit Government. We will look to the very best business organization 

equivalents for performance comparisons and benchmarks, challenging ourselves to match or exceed 

their performance. 

This includes “practicing what we preach.” When we are advising other agencies on methods to improve 

their support operations—whether through organizational fixes or migrating to shared services—GSA 

should adopt a like-minded approach to pursuing efficiency gains and service quality. Our credibility 

across Government is enhanced when we demonstrate that the solutions we recommend externally are 

used inside of GSA as well. This is true for the traditional CXO functions and for non-CXO functions that 

also enable GSA to achieve its mission. 

Finally, we recognize the importance of engaging the entire GSA workforce in this mission. For many, the 

agency’s growing emphasis on providing customers with integrated solutions, life cycle management, 

and shared services will present both a challenge and an opportunity. It is incumbent on GSA to invest in 

our workforce, developing the skills, tools, and inspiration for employees to excel at delivering core and 

emerging services to GSA’s customers and suppliers. 

Key Strategies 

A. Improve the performance of GSA’s CXO functions by building on GSA’s previous CXO 

consolidation initiative and applying the proven shared services principles: 

a. Conduct a thorough review of previous CXO consolidation to implement lessons learned 

and drive further performance across GSA’s support functions; and 

b. Partner with SSPI to assess opportunities for GSA CXO functions to incorporate 

principles and proven practices from the broader shared services community. 

B. Ensure that GSA’s non-CXO functions deliver effective, efficient, and accountable services to 

GSA or, as appropriate, across the Federal Government: 

a. Establish organizational performance plans and service metrics for GSA’s non-CXO 

functions, oriented around the customers to whom they are accountable; and 

b. Build connections to and knowledge of non-CXO functions at other Federal agencies to 

share and adopt proven practices. 

C. Complete a cost and operational review to clearly identify direct and indirect costs; develop 

management actions to address areas for improvement: 

a. Develop a methodology for defining and measuring all forms of indirect costs for GSA 

operations, including service and staff offices; and 
 U.S. General Services Administration Annual Performance Plan and Report 

63 

b. Construct method(s) for allocating costs to GSA products and services to better 

understand their economics and inform pricing strategies. 

D. Engage and support GSA’s workforce to build an organization-wide understanding of how to 

perform GSA’s core and emerging capabilities as well as model shared services behavior: 

a. Conduct a comprehensive workforce capability assessment; 

b. Develop a workforce restructuring plan that aligns capabilities with emerging 

organizational needs; and 

c. Provide training on delivery of integrated solutions across the life cycle of products and 

services. 

Goal Leaders GSA Service and Staff Offices 

Strategic Objective 4.3 – FY 2018 Progress Update

GSA met internal operating goals related to finance, human capital, acquisition, and IT operations. 

Internal customer ratings of CXO functions have steadily risen from FY 2015 through FY 2018 and are in 

the top quartile among CFO Act agencies. These results have been achieved by focusing on high-value 

initiatives related to workforce strategic planning, cloud technology adoption, increasing competition for 

contracting solicitations, and resource management optimization. 

During FY 2018, GSA achieved significant improvements in contract competition rates. Greater 

competition signals that the supplier base is healthy and that agencies are acquiring high-value services 

at the best cost. GSA has also taken on a leadership role in the PMA to increase IT spending 

transparency, as a co-lead with the U.S. Department of Education to encourage Government-wide 

adoption of Technology Business Management (TBM) methods. GSA is currently using TBM to increase 

visibility into the costs and benefits of IT expenditures within the agency. Lastly, strong and upwardly 

trending results from the Federal Employee Viewpoint Survey show that GSA employees feel connected 

to the agency’s mission and have the tools and resources to succeed.

Performance Goal 4.3.1 - Efficient, effective mission-support services at GSA 

 (CXO and non-CXO functions) 

GSA must ensure that internal operations are efficient and effective to support low-cost, highquality products and services. This focus on internal excellence is carried forward in how we provide 

mission-support services to the Government-wide community. 

Benefit to the Public Effective and efficient GSA internal operations decrease the cost burden to 

our agency customers when we do business with them, freeing up funds to 

meet mission objectives for the American public. 
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Performance 

Indicator Definition 

(a) Total GSA operating cost as a percent of goods and services provided

For all of GSA’s major products or services: Total operating costs 

(direct and indirect) divided by total revenues 

(b) Effectiveness of GSA CXO functions, as measured by customer 

satisfaction 

From the PMA Benchmarking Initiative’s Customer Satisfaction

Survey: Equally weighted composite customer satisfaction score for 

GSA’s CXO functions (Acquisition, Financial Management, Human 

Capital, IT and Services). 

(c) Percent of GSA IT portfolio utilizing cloud technologies 

Divides the number of GSA IT investment line items (from IT 

Portfolio Summary) that are utilizing cloud technologies by the total 

number of eligible GSA IT investment line items that could adopt 

cloud services. 

(d) Competition rate for GSA acquisitions 

Provided from FPDS source data. Total dollar value of GSA-competed 

actions divided by total dollar value of GSA-awarded actions; 

including contracts that GSA provisions through reimbursable 

agreements with other agencies. Targets set in 80% range due to 

small business and/or set-aside procurements. 

(e) Competitive One-Bid rate for GSA acquisitions 

Provided from FPDS source data. Total dollar value of GSA-competed 

actions with only one bid divided by total dollar value of GSAcompeted actions; includes contracts that GSA provisions through 

reimbursable agreements with other agencies. 
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Progress Update GSA far exceeded the target of 9.20% with an actual of 8.45% for total GSA 

operating cost as a percentage of goods and services provided. An 8.7% 

increase in revenue was the largest contributor to metric performance, 

coupled with a slight decrease in operating costs. This positive result shows 

that GSA is efficiently managing costs relative to the demand for our goods 

and services. FAS achieved the largest gains in volumes, primarily from an 

increased demand for assisted acquisition services. 

GSA has 47% (43 of 92) of IT investment line items using cloud technologies 

as reported on the OMB IT Portfolio Summary. The 5% increase was a result 

of conducting deeper analysis and identifying additional investments as 

using cloud technologies. 

GSA exceeded the Competition Rate goal of 80% by achieving 82.6% for FY 

2018. This rate is notable compared to an 80.6% overall competition rate for 

large civilian agencies. 

The FY 2018 Competitive One-Bid rate was 18.0%, and though short of the 

goal, this result is slightly better compared to the 17.99% overall one-bid 

rate for large civilian agencies. Leveraging industry best practices, GSA 

launched several initiatives to improve market research, including an 

agency-wide GSA Acquisition College training course, and enhancements to 

market research tools within the Acquisition Gateway. 

GSA will review the methodology for calculating the competition metric in 

FY 2019 to account for the areas where Congress directs GSA to fulfill other 

public policy purposes, such as with AbilityOne and Federal Prison 

Industries. Removing these obligations from eligible competitive action 

would increase GSA’s competition rate target from 80% to 90%. 

(a) Total GSA operating cost as a percent of goods and services provided

Fiscal Year Target Results 

2015 9.20% 9.70% 

2016 9.65% 9.44% 

2017 9.61% 9.25% 

2018 9.20% 8.45% 

2019 9.00% N/A 

2020 8.90% N/A 

Lead Office: Office of the Chief Financial Officer 

 
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(b) Effectiveness of GSA CXO functions, 

as measured by customer satisfaction (scale of 1 to 7) 

Fiscal Year Target Results 

2015 N/A 4.81 

2016 N/A 4.96 

2017 N/A 5.07 

2018 5.15 5.16 

2019 5.23 N/A 

2020 5.27 N/A 

Lead Offices: CFO, OAS, OHRM, and OCIO 

(c) Percent of GSA IT portfolio utilizing cloud technologies 

Fiscal Year Target Results 

2015 N/A 27% 

2016 N/A 42% 

2017 N/A 42% 

2018 44% 47% 

2019 50% N/A 

2020 52% N/A 

Lead Office: Office of the Chief Information Officer 

(d) Competition rate for GSA acquisitions

Fiscal Year Target Results 

2015 N/A 82.5% 

2016 N/A 80.3% 

2017 N/A 81.4% 

2018 80.0% 82.6% 

2019 80.0% N/A 

2020 80.0% N/A 

Lead Office: Office of Government-wide Policy 
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(e) Competitive One-Bid rate for GSA acquisitions

Fiscal Year Target Results 

2015 N/A 13.2% 

2016 N/A 14.3% 

2017 N/A 14.9% 

2018 15.0% 18.0% 

2019 15.0% N/A 

2020 15.0% N/A 

Lead Office: Office of Government-wide Policy 

Performance Goal 4.3.2 - Highly engaged GSA workforce that is prepared to support and deliver 

 new and expanded offerings

A workforce that places the customer at the center of daily operations is able to deliver on current 

needs and provide solutions that meet future requirements. Developing a proactive workforce of 

this caliber enables successful delivery of new and expanded offerings.

Benefit to the Public When we reduce agency burdens and provide high-quality and low-cost 

services to customer agencies, we enable more efficient and effective 

delivery of their mission to the public. 

Performance 

Indicator Definition 

Federal Employee Viewpoint Survey - Connection to GSA's Mission 

(% positive) 

GSA measures a “Mission Index”, which focuses on how connected 

employees feel to the agency mission and how equipped they are 

(through training and development) to deliver on that mission. 

Questions from the U.S. Office of Personnel Management’s Federal 

Employee Viewpoint Survey (FEVS) are used to calculate the 

"Mission Index." The index comprises FEVS questions in two 

subcategories: "Mission and Goals" and "Training and 

Development.” Index is calculated by taking the average “% Positive" 

responses to each of the FEVS questions in the two subcategories. 
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Progress Update GSA is committed to helping employees feel connected to the agency

mission and to equipping employees, through training and development, to 

deliver on the mission. In support of this measure, GSA continues to 

administer a National Employee Engagement Strategy to improve GSA 

employee engagement that directly impacts this goal through development 

of Engagement Action Plans. In addition, GSA delivered guidance on the 

alignment of organizational and employee performance to support 

employee connectedness to the GSA mission. 

In FY 2018, GSA launched Workforce Planning enterprise-wide to identify 

and address gaps between the workforce of today and the human capital 

needs of tomorrow. GSA completed assessments to define an organization’s 

desired future state and human capital requirements by conducting 

workforce analysis, identifying skill gaps, and developing actionable plans 

that outline the strategies to close the gaps. 

GSA also completed a review of agency key occupations to determine the 

most critical core, leadership, and technical skills needed to achieve GSA’s 

mission. Office-specific workforce action plans were completed on schedule 

by June 30, 2018; workforce action plans included actions related to 

improving employee talent development, which will continue into FY 2019. 

GSA also launched enterprise-wide, monthly micro-learning opportunities to 

strengthen professional skills and increase employee knowledge of learning 

resources. Moving forward, GSA will continue to pursue closing skills gaps by 

developing an enterprise-wide competency management program that 

builds the capability to design, develop, deploy, and maintain competency 

models and assessments for major occupations/categories. 

Employee Viewpoint Survey - Connection to GSA's Mission (% positive)

Fiscal Year Target Results 

2015 N/A 69.1% 

2016 N/A 72.2% 

2017 N/A 76.2% 

2018 76.0% 77.0% 

2019 78.0% N/A 

2020 79.0% N/A 

Lead Offices: GSA Service and Staff Offices 

 
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MANAGEMENT AND PERFORMANCE CHALLENGES 

The Government Performance and Results Modernization Act of 2010 requires that Federal agencies 

identify and address management and performance challenges, which include programmatic or 

management functions that have greater vulnerability to waste, fraud, abuse, and mismanagement, and 

areas where failure to perform well could seriously affect the ability of an agency or the Federal 

Government to achieve its mission or goals. Performance Improvement Officers are responsible for 

encouraging and advocating greater impact through innovation, increased effectiveness and efficiency, 

and better customer service. 

The U.S. Government Accountability Office (GAO) performs annual audits of GSA’s major missions and 

routinely assesses the agency’s progress on management challenges identified on GAO’s High Risk List. 

GAO’s High Risk List, including agencies and program areas across the Government, is updated every 2 

years and specifies corrective actions GAO believes necessary to improve critical operations and 

activities. GSA has a leading role in the management of Federal real property, a long-standing challenge 

on the High Risk List, and has equities in several other Government-wide areas. 

GSA addresses reports on major management and performance challenges, and high-risk areas from the 

GSA Office of Inspector General (OIG). The OIG identified eight management challenges in its 

Assessment of GSA's Management and Performance Challenges for Fiscal Year 2019. GSA’s response to 

this assessment is included in the management challenges section of the FY 2018 Agency Financial 

Report. 

GSA’s Enterprise Risk Program, Management Control and Oversight Committee, and Investment Review 

Board also help to identify challenges. These efforts, in addition to consideration of OIG findings and 

GAO recommendations, provide insights that inform cross-organizational initiatives. On a quarterly and 

annual basis, GSA tracks progress toward successful completion of performance goals and strategic 

objectives enterprise-wide. 

EVIDENCE BUILDING 

GSA will strengthen initiatives to improve effectiveness (mission delivery) and efficiency (cost savings) of 

Federal Government operations, while increasing information sharing, accountability, and transparency. 

GSA has established and will continue to build the capacity for using evaluation techniques to drive 

improved policy efficacy and performance. 

DATA VALIDATION AND VERIFICATION 

The GSA Chief Financial Officer certified the FY 2018 performance data contained in this report as 

complete and reliable, as required by the GPRA Modernization Act of 2010. GSA has verification and 

validation techniques in place which provide reasonable assurance over the completeness and reliability 

of all performance data contained in this report. These techniques included: 

(1) Maintaining a data dictionary of performance data measures, including data sources, 

computation methodology, and reliability assessment for each performance indicator; 
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(2) Verifying, at least annually, the accuracy and completeness of the information contained in 

the data dictionary; and 

(3) Validating, at least annually, the measures reported by collecting measure source data and 

calculation files and applying the calculation methodology defined in the data dictionary. 

LOWER-PRIORITY PROGRAM ACTIVITIES 

The President’s Budget identifies the lower-priority program activities, where applicable, as required 

under the GPRA Modernization Act, 31 U.S.C. 1115(b)(10). The public can access the volume at: 

http://www.whitehouse.gov/omb/budget.