U.S. GENERAL SERVICES

ADMINISTRATION

FY 2015

Congressional Justification

March 10, 2014
U.S. General Services Administration

Introduction to the FY 2015 Request

INTRODUCTION

At a time when budgets are tightening across the federal government, the General Services 

Administration’s mission to provide the best value in real estate, acquisition, and technology 

services to the government and the American people has never been more important. The 

President’s Fiscal Year 2015 Budget for the GSA builds upon the FY 2014 appropriations act. 

The President’s Budget Report allows the GSA to make important, common sense investments 

in our nation’s infrastructure. The requested critical funding will enable us to reduce agency rent 

through consolidation, improve critical border crossing stations, and to make major repairs and 

fire-life safety improvements that will extend the life of our public building assets. While we have 

begun to make significant progress in addressing years of deferred projects, there is still 

significant work to ensure that our buildings can support the work of government in the 21st 

century. In fact, every dollar that we spend now on real estate repairs saves roughly four dollars 

in potential costs later. This budget also allows us to maintain the integrity of the Federal 

Buildings Fund and begin the process of reestablishing an adequate and reliable source of 

funding for GSA capital investments.

This budget also allocates more than $240 million in much needed funds for our appropriated 

accounts funding activities that increase the efficiency and effectiveness of our partner 

agencies. This level includes $59 million for the Office of Government-wide Policy to develop 

policies and tools to drive savings and effectiveness in a number of areas, including 

procurement and travel. The budget also provides $61 million for our Operating Expenses 

account, which, among others, includes the Office of Real Property Utilization and Disposal, a 

critical resource for government agencies looking to reduce holding and operating costs by 

disposing of unneeded real estate. In addition, this request includes $53 million for the Office of 

Citizen Services and Innovative Technologies to facilitate easy access for citizens, businesses, 

and the media to information from the government through services such as cloud technology, 

USA.gov Data.gov, and Challenge.gov.

We look forward to continuing to work with Congress to provide our federal agency partners the 

services and facilities they need to fulfill their missions. Funding for our public infrastructure and 

governmentwide policies and services will enable us to provide agencies with the services they 

need at the best value for the American people.
U.S. General Services Administration

SUMMARY of the FY 2015 REQUEST

Fiscal Year 2015 Budget Request

CONTENTS

Summary of the Request ..............................................................................................................................2

Summary of Discretionary Budget Authority .................................................................................................2

Federal Buildings Fund .................................................................................................................................2

Federal Buildings Fund, Request for New Obligational Authority.................................................................3

GSA Annual Appropriations ..........................................................................................................................4

GSA Mission and Goals ................................................................................................................................5

Summary of Requested Appropriations Action.............................................................................................6

Total Obligations by Object Classification.....................................................................................................7

GSA Total FTE..............................................................................................................................................8

Explanation of Changes, Federal Buildings Fund.........................................................................................9

Explanation of Changes, GSA Annual Appropriations................................................................................10
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-2

Summary of the Request

The General Services Administration’s (GSA) FY 2015 budget reflects the agency’s focus on 

the core mission of delivering best value in real estate, acquisition, and technology services 

while finding efficiencies and putting savings to work for the government and the American 

people. 

The FY 2015 budget of the GSA requests $243,871 thousand in discretionary budget authority 

for GSA annual appropriations and authority to spend at the level of agency rent collections,

zero ($0) net budget authority (NBA) for the Federal Buildings Fund. 

Summary of Discretionary Budget Authority

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Discretionary Budget Authority

 FBF Net Budget Authority1$ (1,440,499) $ 1,593,834 $ -

 Annual Appropriations 226,336 240,820 243,871

GSA Discretionary Budget Authority $ (1,214,163) $ 1,834,654 $ 243,871

1 PBS projects full repayment of principal balances, and the payment of necessary costs associated w ith principal 

repayment, to the Federal Financing Bank in FY 2014. Full repayment of principal balances is authorized by P.L. 101-136.

Federal Buildings Fund

GSA requests $9,917,677 thousand in New Obligational Authority (NOA) for the Federal 

Buildings Fund, equal to the anticipated level of collections from tenant agencies. Funding the 

requested capital program in full allows GSA to address previously identified requirements and 

new projects that will provide the level of capital reinvestment commensurate with the 

commercially equivalent level of rent collected, save agency and GSA funds by reducing 

operating costs, and improve the efficiency of space utilization.
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-3

Federal Buildings Fund, Request for New Obligational Authority

(Dollars in Thousands)

Summary of Requested Appropriations Action

(Dollars in Thousands)

FY 2013 FY 2014 FY 2015

Actual Enacted Request

Construction and Acquisition $ 70,377 $ 684,106 $ 745,449

Major Repairs and Alterations 77,262 730,860 866,472

Basic Repairs and Alterations 266,650 378,535 390,266

Installment Acquisition Payments 126,801 109,000 0

Rental of Space 5,210,198 5,387,109 5,671,348

Building Operations 2,350,968 2,221,432 2,244,132

Total, New Obligation Authority $ 8,102,256 $ 9,511,042 $ 9,917,667

FBF Net Budget Authority1 (1,440,499) 1,593,834 0

FBF Net Budget Authority Without Debt Repayment (487,994)

FBF Supplemental Appropriation2

 7,000 0 0

1 PBS projects full repayment of principal balances, and the payment of necessary costs associated w ith principal repayment, to the Federal 

Financing Bank in FY 2014. Full repayment of principal balances is authorized by P.L. 101-136.

2

 The Disaster Relief Appropriations Act, P.L. 113-2, provided $7M to GSA for supplemental Repairs and Alterations funding for Federal facilities 

affected by Hurricane Sandy.

FY 2015 Capital Investment Program

(Dollars in Thousands)

CONSTRUCTION AND ACQUISITION Program (in priority order):

Executive Agencies: 

Subtotal, Executive Agencies....................................................... $ 324,989

Land Ports of Entry:

 Subtotal, Land Ports of Entry....................................................... $ 420,460

New Obligation Authority, CONSTRUCTION AND ACQUISITION Program $ 745,449

REPAIRS AND ALTERATIONS Program (in priority order):

Non-Prospectus (Basic) Repairs and Alterations Program.......................... $ 390,266

Special Emphasis Programs:

 Energy and Water Retrofit and Conservation Measures Program........................... 40,000

 Consolidation Activities.......................................................................... 100,000

 Fire Prevention & Life Safety Program...................................................... 40,000

 Judiciary Court Security Program .............................................................. 20,000

 Subtotal, Special Emphasis Program........................................... $ 200,000

Major Repairs & Alterations..................................................................... $ 666,472

Major Repairs & Alterations Design Program............................................. $ -

New Obligational Authority, REPAIRS AND ALTERATIONS Program............. $ 1,256,738
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-4

GSA Annual Appropriations

Annual Appropriations, Request for New Budget Authority

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Government-wide Policy $ 57,918 $ 58,000 $ 59,206

Operating Expenses 65,865 63,466 61,049

Former Presidents 3,519 3,550 3,344

Federal Citizen Services Fund1 44,068 50,804 53,294

Office of the Inspector General 54,966 65,000 66,978

Total Budget Authority $ 226,336 $ 240,820 $ 243,871

1The FY 2015 Budget proposes a consolidation of the E-Gov Fund and the Federal Citizen Services Fund. As a matter 

of parity, the above table reflects combined figures for the E-Gov Fund and the Federal Citizen Services Fund for 

fiscal years FY 2013 through FY 2015

GSA Requests $243,871 thousand for five appropriations, which is a net increase of $3,051 

thousand from the FY 2014 enacted level. 

GSA requests an increase of $1,978 thousand to the Office of the Inspector General 

appropriation to fund increased program costs and three new oversight initiatives and 

associated FTE. 

GSA also requests additional funds for the following: (1) $3,781 thousand for additional support 

services for the Federal Citizens Services Fund and the Office of Government-wide Policy; (2) 

$1,010 thousand for FY 2015 Federal pay increase; and (3) $573 thousand and seven FTE for 

the Federal Citizen Services Fund contractor conversion to government employees; 

These increases are offset in part by reductions in program operations for: (1) $1,614 thousand

for Government-wide Policy appropriation; (2) $2,904 thousand for Operating Expenses 

appropriation; and (3) $228 thousand for Former Presidents appropriation. 
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-5

GSA Mission and Goals

GSA was established on July 1, 1949, as a result of the Hoover Commission’s recommendation 

that consolidating administrative functions across government into one organization would be 

more effective and economical for the government and would avoid “senseless duplication, 

excess cost, and confusion in handling supplies, and providing space.” Our mission, vision and 

goals were selected to continue in this tradition and focus our activities to make government 

more effective and economical by providing savings to federal departments and agencies, 

improving the efficiency of operations and service delivery, and delivering excellent customer 

service.

Mission

Deliver the best value in real estate, acquisition, and 

technology services to government and the American people.

Strategic Goals

Savings – Provide savings to federal departments and agencies. We will use our 

purchasing power and expertise to deliver cost-effective real estate, acquisition and 

technology solutions to federal departments and agencies.

Efficiency – Improve the efficiency of operations and service delivery. We will 

streamline our operations to offer high quality real estate, acquisition, and technology 

services at a good value to federal departments and agencies. 

Service – Deliver excellent customer service. We will deliver excellent customer 

service to federal agencies and departments by making it easier to reliably meet their 

real estate, acquisition and technology needs. 
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-6

Summary of Requested Appropriations Action

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Federal Buildings Fund (FBF) New Obligational Authority

Construction and Acquisition $ 70,377 $ 684,106 $ 745,449

Major Repairs and Alterations 77,262 730,860 866,472

Basic Repairs and Alterations 266,650 378,535 390,266

Installment Acquisition Payments 126,801 109,000 0

Rental of Space 5,210,198 5,387,109 5,671,348

Building Operations 2,350,968 2,221,432 2,244,132

Total, New Obligational Authority $ 8,102,256 $ 9,511,042 $ 9,917,667

FBF Net Budget Authority1 (1,440,499) 1,593,834 0

FBF Net Budget Authority Without Debt Repayment (487,994)

FBF Supplemental Appropriation2

 7,000 0 0

Annual Appropriations, Budget Authority

Government-wide Policy $ 57,918 $ 58,000 $ 59,206

Operating Expenses 65,865 63,466 61,049

Former Presidents 3,519 3,550 3,344

Federal Citizen Services Fund3 44,068 50,804 53,294

Office of the Inspector General 54,966 65,000 66,978

Total, Annual Appropriations $ 226,336 $ 240,820 $ 243,871

TOTAL, BA and NOA $ 8,328,592 $ 9,751,862 $ 10,161,538

1 PBS projects full repayment of principal balances, and the payment of necessary costs associated w ith principal repayment, to the 

Federal Financing Bank in FY 2014. Full repayment of principal balances is authorized by P.L. 101-136.

2

 The Disaster Relief Appropriations Act, P.L. 113-2, provided $7M to GSA for supplemental Repairs and Alterations funding for 

Federal facilities affected by Hurricane Sandy.

3The FY 2015 Budget proposes a consolidation of the E-Gov Fund and the Federal Citizen Services Fund. As a matter of parity, the 

above table reflects combined figures for the E-Gov Fund and the Federal Citizen Services Fund for fiscal years FY 2013 through FY 

2015
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-7

Total Obligations by Object Classification

(Dollars in Thousands)

FY 2013 FY 2014 FY 2015

Actual Enacted Request

11.1 Full-time permanent...................................... 1,110,156 1,161,347 1,153,196

11.3 Other than full-time permanent 6,440 8,457 7,893

11.5 Other personnel compensation........................ 25,599 22,297 21,854

11.8 Special personnel service payments................. 1,746 3,210 2,433

12.1 Civilian personnel benefits.............................. 341,693 359,172 354,534

13.0 Benefits for former personnel.......................... 4,994 5,955 6,840

21.0 Travel and transportation of persons................. 14,541 26,610 22,329

22.0 Transportation of things................................. 67,938 30,420 21,482

23.1 Rental payments to GSA 73,546 81,822 87,153

23.2 Rental payments to others............................. 5,677,161 5,546,004 5,672,569

23.3 Communications, utilities, and misc. charges..... 1,694,058 1,632,089 1,631,269

24.0 Printing and reproduction............................... 3,729 5,618 5,390

25.1 Advisory and assistance services.................... 5,927,645 7,465,712 7,631,346

25.2 Other services from non federal sources........... 50,881 77,129 75,746

25.3 Other goods and services from federal sources.... 616,282 794,307 639,992

25.4 Operation and maintenance of facilities............. 1,178,882 1,384,144 1,454,157

25.6 Medical Care 1 1 1

25.7 Operation and maintenance of equipment.......... 292,057 250,307 257,422

25.8 Subsistence and Support of Persons 0 0 0

26.0 Supplies and materials.................................. 2,293,674 2,591,153 2,644,804

31.0 Equipment................................................. 856,403 1,282,907 1,246,681

32.0 Land and structures...................................... 778,650 1,132,950 1,440,734

33.0 Investment and Loans 0 0 0

41.0 Grants, subsidies, and contributions................. 45 46 46

42.0 Insurance claims and indemnities.................... 31,931 2,365 1,219

43.0 Interest and dividends................................... 145,133 70,058 12,043

44.0 Refunds.................................................. 12 10 10

99.0 Total Obligations....................................... 21,193,199 23,934,088 24,391,143

 Subtotal, PC&B................................. 1,490,629 1,560,438 1,546,750

 Subtotal, Non-labor............................. 19,702,570 22,373,650 22,844,393
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-8

GSA Total FTE 

Direct Reimbursable Total Direct Reimbursable Total Direct Reimbursable Total

Annual Appropriations

Office of Government-wide Policy 149 1 7 166 135 2 7 162 135 3 2 167

Operating Expenses 302 1 1 313 345 1 7 362 341 1 6 357

Federal Citizen Services Fund 8 0 0 8 0 9 0 0 9 0 9 7 0 9 7

Former Presidents 0 0 0 0 0 0 0 0 0

Office of Inspector General1274 0 274 316 3 319 333 3 336

Subtotal, Annual Appropriations 805 2 8 833 886 4 7 933 906 5 1 957

Revolving Funds

Federal Buildings Fund 5,924 350 6,274 5,459 350 5,809 5,125 350 5,475

Acquisition Services Fund 0 3,544 3,544 0 3,276 3,276 0 3,295 3,295

Working Capital Fund 1,172 3 2 1,204 2,380 3 2 2,412 2,288 3 1 2,319

Subtotal, Revolving Funds 7,096 3,926 11,022 7,839 3,658 11,497 7,413 3,676 11,089

Permanent Budget Authority 2 9 0 2 9 3 7 0 3 7 3 7 0 3 7

GSA TOTAL 7,930 3,954 11,884 8,762 3,705 12,467 8,356 3,727 12,083

FY 2013 Actual FY 2014 Enacted FY 2015 Request

1Amounts do not reflect American Recovery and Reinvestment Act FTE
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-9

Explanation of Changes, Federal Buildings Fund

(New Obligational Authority, Dollars in Thousands)

Construction 

and 

Acquisition

Repairs and 

Alterations

Installment 

Acquisition 

Payments

Rental of 

Space

Building 

Operations Total

FY 2014 Enacted $ 684,106 $ 1,109,395 $ 109,000 $ 5,387,109 $ 2,221,432 $ 9,511,042

Change in Construction for Executive Agencies (117,843) (117,843)

Change in Construction of Courts (36,928)

Change in Construction of LPOE 216,114 216,114

Change in Basic R&A program 11,731 11,731

Change in Line-Item R&A program 140,612 140,612

Change in Special Emphasis programs (5,000) (5,000)

Decrease in Interest Payments (109,000) (109,000)

Projected increase due to IA lease expansions and other FY 2013 program changes 157,547 157,547

Annualization of remaining FY 2014 Program Changes 36,487 36,487

Rental Rate Increases 30,635 30,635

Lump Sum Payments for real estate taxes and lease buyouts 149,933 149,933

Lease Cancellations (107,892) (107,892)

Lease Expansions (other than indefinite) 17,529 17,529

Change in Base Building Cost 68,156 68,156

Change in Other/ Miscellaneous Building Cost (1,842) (1,842)

Change in PBS Administrative Cost (48,531) (48,531)

Change in Other / Miscellaneous PBS Administrative Cost 4,917 4,917

FY 2015 Request $ 745,449 $ 1,256,738 $ - $ 5,671,348 $ 2,244,132 $ 9,917,667
U.S. General Services Administration

Summary of the FY 2015 Request

GSA-10

Former Presidents

FTE Enacted FTE Enacted Enacted FTE Enacted FTE Enacted FTE Enacted

FY 2014 Enacted 135.0 $ 58,000 345.0 $ 63,466 $ 3,550 90.0 $ 50,804 316.0 $ 65,000 886.0 $ 240,820

FY 2014 Base Admustments

FY 2015 Pay Increase (1%) Effective Jan 2015 201 308 8 141 352 0.0 1,010

Inflation 302 0.0 302

Adjustment for FY 2014 no-year funding (2,000) 0.0 (2,000)

Program Reductions 0.0 0

Personnel Compensation and Benefits -4.0 (373) -4.0 (373)

Travel and Transportation (83) (32) (11) 0.0 (126)

Communications, Printing, and Reproduction (26) (31) (249) 0.0 (306)

Printing (3) 0.0 (3)

Contractual Services (2,301) (118) 0.0 (2,419)

Supplies, Materials, and Equipment (118) (47) (7) 0.0 (172)

Technical Support Contracts Savings (959) 0.0 (959)

Program Increases 179 0.0 179

Increase in Benefits of Former Personnel 2 0.0 2

PC&B FTE Conversion from Contractual Services 7.0 573 7.0 573

Advisory and Assistance Services 1,817 0.0 1,817

Centralized Communications Platform 1,964 0.0 1,964

Other Goods and Services from Federal Sources 226 0.0 226

Rental Payments 12 787 0.0 799

IG Initiative—False Claims Audit Report 5.0 776 5.0 776

IG Initiative—FAR Audit Support 2.0 301 2.0 301

IG Initiative—Construction Contract Audit 10.0 1,460 10.0 1,460

FY 2015 Request 135.0 $ 59,206 341.0 $ 61,049 $ 3,344 97.0 $ 53,294 333.0 $ 66,978 906.0 $ 243,871

1

The FY 2015 Budget proposes a consolidation of the E-Gov Fund and the Federal Citizen Services Fund. As a matter of parity, the above table reflects combined figures for the E-Gov Fund and the Federal 

Citizen Services Fund.

Government-w ide Policy Operating Expenses Federal Citizen Services 

Fund1

Office of Inspector 

General Total

Explanation of Changes, GSA Annual Appropriations

(Budget Authority, Dollars in Thousands)
U.S. General Services Administration

FEDERAL BUILDINGS FUND

Fiscal Year 2015 Budget Request

CONTENTS

Summary of the Request ................................................................................ 3

The Federal Buildings Fund............................................................................ 7

Building Operations Spending Reductions............................................. 7

Rental of Space Forecasting Improvements .......................................... 8

Methodology for FY 2015 Request......................................................... 9

Resources, New Obligational Authority, and Fund Balance ......................... 10

Crosswalk of FY 2013 New Obligational Authority ....................................... 11

Indefinite Authority........................................................................................ 11

Appropriations Language.............................................................................. 12

Obligations by Program ................................................................................ 18

Summary of FTE by Occupation................................................................... 18

FY 2015 Capital Program ............................................................................. 19

Program Description – Construction and Acquisition of Facilities ........ 19

Construction and Acquisition of Facilities Project List .......................... 20

Project Descriptions – Construction and Acquisition of Facilities ......... 21

Program Description – Repairs and Alterations ................................... 27

Repairs and Alterations Project List ..................................................... 28

Project Descriptions – Repair and Alterations...................................... 29

Leasing......................................................................................................... 46

Program Description – Leasing............................................................ 46

Leasing Inventory................................................................................. 46

Rental of Space, Explanation of Changes............................................ 47

Rental of Space, Delegation Obligations.............................................. 47

Building Operations ...................................................................................... 48

Program Description – Building Operations ......................................... 48

Building Operations, Explanation of Changes...................................... 48
Justification of Building Operations Program ....................................... 49

Building Services.................................................................................. 49

Salaries and Expenses ........................................................................ 51

Reimbursable Program................................................................................. 52

Program Description – Reimbursable Program.................................... 52

Evidence and Innovation Agenda ................................................................. 53

Harnessing data to improve agency results ......................................... 53

High-quality, low-cost evaluations and rapid, iterative experimentation 53

Strengthening agency capacity to use evidence .................................. 54

Schedule of Indefinite Authorities ................................................................. 55
 U.S. General Services Administration

 Federal Buildings Fund

FBF-3

Summary of the Request 

The mission of GSA’s Public Buildings Service (PBS) is to provide effective, mobile, sustainable 

workplace solutions for Federal agencies at the best value for the American taxpayer. PBS 

engages private sector architects, construction managers, and engineers to design and build 

award-winning courthouses, land ports of entry, Federal office buildings, laboratories, and data 

processing centers. PBS also repairs, alters, and renovates existing facilities. PBS is a leader 

in energy conservation, sustainability, and historic preservation.

The Federal Buildings Fund (FBF) finances the activities of PBS, which provides space and 

services to Federal agencies in a relationship akin to landlord and tenant. PBS’s workspace 

inventory totals approximately 353 million square feet, and accommodates more than one

million Federal employees in thousands of communities across the country. 

The FBF replaces the need for direct appropriations to PBS. As a quasi-revolving fund, the FBF 

uses income derived from rent assessments that approximate commercial rates for comparable 

space and services. Funds are made available through appropriated limitations on obligations 

from the FBF allocated for various FBF activities. 

The FY 2015 budget request provides a total new obligational authority (NOA) of $9,917,667

thousand to be funded at the level of anticipated revenue collections. The funds requested 

would finance a $2,002,187 thousand capital investment program funded from rent revenues. 

The requested funding includes (1) $745,449 thousand for New Construction and 

Acquisition and (2) $866,472 thousand for Repairs and Alterations and an additional

$390,266 thousand for Basic Repairs and Alterations, and funding for the following projects:
U.S. General Services Administration

Federal Buildings Fund

FBF-4

CONSTRUCTION AND ACQUISITION Program:

(In Priority Order)

New Construction:

Washington, DC DHS Consolidation at St. Elizabeths $ 250,534

Civilian Cyber Campus 35,000

Glenville, NY Scotia Depot 15,780

Pembina, ND APHIS Building 5,357

Austin, TX IRS Service Center 11,887

Rutland, VT Robert T. Stafford U.S. Post Office & Courthouse 6,431

Subtotal, Executive Agencies $ 324,989

San Diego, CA San Ysidro Land Port of Entry $ 216,828

Calexico, CA Calexico West Land Port of Entry Phase I 98,062

Alexandria Bay, NY Land Port of Entry 105,570

Subtotal, Land Ports of Entry $ 420,460

Total FY 2015 Construction and Acquisition of Facilities Program $ 745,449
 U.S. General Services Administration

 Federal Buildings Fund

FBF-5

REPAIRS AND ALTERATIONS Program:

(In Priority Order)

Nonprospectus (Basic) Repairs and Alterations Program $ 390,266

Major Repairs and Alterations

Chamblee, GA Chamblee IRS Parking Garage $ 7,409

Various Locations, Region 4 Fire Alarm Systems 5,831

Battle Creek, MI Hart Doyle Inouye Federal Center 11,197

Washington, DC Frances Perkins Federal Building Fire Alarm System 16,320

Washington, DC Robert C. Weaver Federal Building 13,375

Reston, VA John W. Powell Federal Building 11,010

Washington, DC Sydney Yates Federal Building 32,820

Portland, OR BPA Building 9,050

Portland, OR 911 Federal Building 7,439

New York, NY Ted Weiss Federal Building 11,733

Washington, DC Harry S. Truman Federal Building 15,530

Washington, DC GSA Headquarters Building 7,091

Salt Lake City, UT Wallace F. Bennett Federal Building 7,758

Kansas City, MO 2306/2312 Bannister Road 39,706

Roanoke, VA Richard H. Poff Federal Building 15,128

St. Louis, MO Goodfellow Federal Complex 36,742

Boston, MA Thomas O'Neill Federal Building 16,146

Washington, DC Herbert C. Hoover Federal Building 150,900

Boston, MA Captain John Foster Williams U.S. Coast Guard Building 8,616

Lakewood, CO Denver Federal Center Building 53 27,726

Fort Worth, TX Fritz G. Lanham Federal Building 18,044

Detroit, MI Theodore Levin U.S. Courthouse 40,499

San Francisco, CA Phillip Burton Federal Building and U.S.Courthouse 29,000

Chicago, IL 536 S. Clark Street Federal Building, John C. Kluczynski 

Federal Building and U.S. Post Office Loop Station 17,116 

Cincinnati, OH John Weld Peck Federal Building 35,373

Detroit, MI 985 Michigan Avenue 74,913

Subtotal, Major Repairs & Alterations $ 666,472

Energy and Water Retrofit and Conservation Measures $ 40,000

Consolidation Activities 100,000

Fire and Life Safety Program 40,000

Judiciary Court Security Program 20,000

Subtotal, Special Emphasis Programs $ 200,000

Total FY 2015 Repairs and Alterations Program $ 1,256,738
U.S. General Services Administration

Federal Buildings Fund

FBF-6

(3) $5,671,348 thousand for Rental of Space to acquire and administer leasehold 

interests in privately owned buildings where Federally owned space is not available. 

This amount funds annual rent for current leases, tax and other one-time payments, 

and rent increases associated with replacement leases and expansion space. This 

request is 5.3 percent above the FY 2014 enacted level. Anticipated FY 2015 

obligations will increase by only 2.3 percent over FY 2014 anticipated obligations due 

to the use of unobligated balances from prior years in FY 2014; and 

(4) $2,244,132 thousand for Building Operations to provide services for both Federally 

owned and leased facilities as well as administration and management of all PBS real 

property programs. Of the total amount for Building Operations, $1,122,727 thousand 

will be allocated to building services and $1,121,405 thousand will be allocated to 

salaries and expenses. This level funds current services and cost increases for 

cleaning, utilities and fuels, maintenance, and building services in new spaces; 

provides for the salaries and expenses of 5,125 FTE, a 334 FTE reduction from the 

FY 2014 enacted level; reduces travel obligations by 25 percent and reduces IT 

spending by 12 percent from the FY 2014 enacted level.

In addition to the authority requested in FY 2015, PBS projects $2,399,378 thousand in 

reimbursable authority for services provided to other agencies, including funding for 350 FTE. 

PBS also projects $225,462 thousand in permanent indefinite authority from new leased space, 

outleasing, energy rebates, and revenue from the sale of recyclable materials. 
 U.S. General Services Administration

 Federal Buildings Fund

FBF-7

The Federal Buildings Fund

The FBF is financed by income from rent charged to occupants of GSA-controlled space. The 

charges are required by law to approximate commercial rates for comparable space and 

services including repairs and other capital improvements. As a quasi-revolving fund, the FBF 

is subject to annual Congressional enactment of New Obligational Authority (NOA), a limitation 

on the use of revenue. 

Since FY 2011, Congress has enacted funding levels that resulted in spending authority below 

the rent collections of the FBF. This diminishes PBS’s ability to maintain a self-sustaining fund 

that meets the reinvestment needs of the inventory and will lead to degradation of the quality of 

the space. Further, it jeopardizes the self-sustaining nature of the fund. If in FY 2015, PBS is 

able to spend at the level of anticipated collections, PBS will be able to fund capital projects, 

several that were requested in prior years, as well as new projects focused on consolidating 

space, reducing utilization rates, alleviating life safety issues, and reducing overall costs to 

customer agencies. 

In these challenging fiscal times, effective management strategies are an important component 

of the PBS approach to efficient and responsible budgeting. As a result, in FY 2015 PBS will 

increase focus on strategies that generate savings and efficiencies in the operating programs 

while providing superior service and savings for our customer agencies. The major drivers of 

cost reduction include the realignment of management structures, reductions to management 

support contracts, and savings in building services resulting from past investments in the capital 

program.

Building Operations Spending Reductions

The FY2015 request continues the strategy of reducing the operating programs in order to 

maximize funding for repairs and alterations and construction and acquisition. As a result, the 

Building Operations program will continue to reduce personnel costs, anticipating that FY 2015 

will be approximately six percent below the FY 2014 enacted level. Savings in salaries and 

expenses will be achieved by continuing to streamline operating programs involving 

realignment, effiencies in building services and reductions in other administrative costs.
U.S. General Services Administration

Federal Buildings Fund

FBF-8

PBS Realignment will achieve efficiency by aggregating functions, allowing PBS to reduce 

personnel costs through hiring freezes and attrition as well as reducing IT costs by eliminating 

region specific IT systems. The personnel reductions will focus on non-frontline employees to 

maintain the level of service to customer agencies.

Other Building Services inflationary increases will be offset through energy savings and facilities 

management efficiencies. The maturity of GSALink and Shave Energy programs are anticipated 

to realize energy savings. The Total Workplace program will generate savings for customer 

agencies and PBS from efficiencies generated through implementation of new space designs 

and strategies. Facilities Management currently tracks building services costs against industry 

benchmarks, and in instances where a building’s contract costs are far above industry 

averages, costs - will be brought in line with the industry standards through new awards or 

options. Additional savings will be achieved by the consolidation of operations and 

maintenance contracts.

Management Support Contracts will be reduced by 18 percent or $16 million from the FY 2014 

enacted. Reductions will be realized in the regions and Central Office by cutting the number of 

administrative contractors; insourcing selected functions; renegotiating contract terms and 

prices; reducing technical support contracts; and reducing contract lease administrators and 

project managers. 

Other Savings include reductions to travel and security payments to the Federal Protection 

Service. Travel will be reduced by 25 percent from the FY 2014 enacted. Security savings of 8

percent from the FY 2014 enacted level will be generated from efficiencies in the contractor 

clearance process; reductions in building specific security charges resulting from greater insight 

into line-item billing; and reduction in charges associated with vacant space. 

Rental of Space Forecasting Improvements

Cost estimation can be a difficult task in the constantly changing Federal environment. 

Historical trends alone are no longer sufficient indicators of projected costs. Recent analyses 

determined that in prior fiscal years, lease cancellations have been consistently underestimated 

and Indefinite Authority (IA) expansions have been consistently over-estimated, creating 

inefficiencies in the allocation of resources within the FBF. PBS has evaluated forecasting 

processes and adjusted methods for current expectations. 
 U.S. General Services Administration

 Federal Buildings Fund

FBF-9

Methodology for FY 2015 Request

GSA acknowledges that previous Rental of Space annual requests have overestimated the 

funds needed to meet our contractual requirements, so PBS instituted an improved rent 

estimation process for the formulation of the FY 2015 request. The FY 2015 request was 

develop using newly available regional data, an improvement over previous years in the 

following ways: 

Greater Level of Detail - Tracking individual lease details to formulate the estimated 

costs associated with each lease for the period of FY 2014 through FY 2015. 

New Requirements and Guidelines – Improved availability of requirements associated 

with future projects allows PBS to estimate more accurately. Regions previously relied 

upon historical data to prepare estimates and to ensure that funding would be available. 

Starting with the FY 2015 preparation process, the request level includes only known 

requirements for lease projects, improving the precision of the request. 

Additional Levels of Review – Regional Directors for Leasing, Portfolio, and Financial 

Management are now required to certify that the budget request was thoroughly 

validated. Additionally, Central Office reviews the prospectus level lease project list to 

ensure the accuracy of project funding estimates and schedule projections.
U.S. General Services Administration

Federal Buildings Fund

FBF-10

Resources, New Obligational Authority, and Fund Balance 

(Dollars in Thousands, excludes Indefinite Authority) 

1 Redemption of debt repayment in FY 2014 reflects principal and necessary costs associated 

with principal repayment. Full repayment of principal balances is authorized by P.L. 101-136. 

Estimated Net Budget Authority without full repayment of debt includes $92,524 thousand in 

Redemption of Debt payments that would be due in FY 2014 following the existing payments 

schedule.

FY 2013 FY 2014 FY 2015

Enacted Enacted Request

Resources:

Available from prior year for reauthorization $ 3,280,326 $ 4,727,825 $ 3,133,991

Redemption of Debt (86,621) (2,174,352) 0

Reprogramming Authority 77,639 141,000 0

Appropriation 7,000 0 0

Transfer 0 0 0

Rescission/Lapsed Current Year Authority 0 0 0

Rescission/Lapsed Prior Year Authority 0 0 0

Revenue from operations: 

Rent 9491883 9,911,947 $ 9,876,293

Miscellaneous 8,850 0 0

Outleasing 3,451 8,244 5,883

Retention of Proceeds (Sale of Real Property) 31,768 14,227 19,375

SSA/CDC/CMS Payments 15,785 16,142 16,116

Subtotal, Revenue $ 9,551,737 $ 9,950,560 $ 9,917,667

Total Resources Available $ 12,830,081 $ 12,645,033 $ 13,051,658

New Obligational Authority:

Construction and Acquisition 70,377 684,106 745,449

Major Repairs and Alterations 77,262 730,860 866,472

Basic Repairs and Alterations 266,650 378,535 390,266

Installment Acquisition Payments 126,801 109,000 0

Rental of Space 5,210,198 5,387,109 5,671,348

Building Operations 2,350,968 2,221,432 2,244,132

Total New Obligational Authority $ 8,102,256 $ 9,511,042 $ 9,917,667

Fund Balance: 

Total Resources Available $ 12,830,081 $ 12,645,033 $ 13,051,658

Total New Obligational Authority (8,102,256) (9,511,042) (9,917,667)

Changes to Prior Year Authority 0 0 0

Fund Balance (Available for Reauthorization) $ 4,727,825 $ 3,133,991 $ 3,133,991

Net Budget Authority ($1,440,499) $1,593,834 $0

Fund Balance w/o Redemption of Debt (Available for Reauthorization) $ 5,215,819

Net Budget Authority w/o Full Repayment of Debt ($487,994)
 U.S. General Services Administration

 Federal Buildings Fund

FBF-11

Crosswalk of FY 2013 New Obligational Authority 

(Dollars in Thousands) 

1. Escalations and Reprogrammings towards the Construction and Acquisition provided funding 

for the Suitland, MD, Census Headquarters ($1.6M); White Oak, MD, Food and Drug 

Administration ESPCIII ($8.5M); Martinsburg, WV, Lease Purchase ($6M); and Washington, 

DC, St. Elizabeths Construction Escalation ($4.277M); 

2. Reprogrammings towards Repairs and Alterations provided funding for the Greenbelt, MD 

Courthouse ($10M); New York, NY, Daniel Patrick Moynihan Courthouse ($10.445M); Oak 

Ridge, TN, Joe Evins Emergency Repairs ($3.7M); Newark, NJ, Peter Rodino FOB Emergency 

Asbestos ($16.117M) Auburn, WA Building 7 ($17M)

Indefinite Authority 

(Dollars in Thousands) 

Notes: 

Indefinite authorities are not included in reported resources or new obligational authority.

P.L. 113-6 

Enacted 

03/26/2013

Approved 

Reprogramming

FY 2013 

Enacted 

Legislation

Indefinite

Authority

FY 2013 Actual

Authority

New Obligational Authority:

Construction and Acquisition 50,000 $ 20,377 $ 70,377 $ 0 $ 70,377

Major Repairs and Alterations 20,000 57,262 77,262 0 77,262

Minor Repairs and Alterations 266,650 0 266,650 14,918 281,568

Installment Acquisition Pymts 126,801 0 126,801 0 126,801

Rental of Space 5,210,198 0 5,210,198 419,797 5,629,995

Building Operations 2,350,968 0 2,350,968 37,147 2,388,115

Total, New Obligational Authority $ 8,024,617 $ 77,639 $ 8,102,256 $ 471,862 $ 8,574,118

FY 2013 

Actual

FY 2014

Enacted

FY 2015

Request

Repairs and Alterations:

Historical Outleasing $ 6,951 $ 6,000 $ 7,000

Energy Rebates 4,860 5,000 5,000

International Trade Center 2,693 4,000 4,000

Recycling 734 400 400

Total, Repairs and Alterations $ 15,238 $ 15,400 $ 16,400

Rental of Space: Leased Expansion Space $ 393,322 $ 296,979 $ 175,215

Building Operations:

International Trade Center $ 30,531 $ 30,092 $ 26,700

Cooperative Use Act - Outleasing 4,515 4,515 4,352

National Antenna Program 2,540 2,540 2,795

Total, Building Operations $ 37,586 $ 37,147 $ 33,847

Total Indefinite Authority $ 446,146 $ 349,526 $ 225,462
U.S. General Services Administration

Federal Buildings Fund

FBF-12

Appropriations Language 

Amounts in the Fund, including revenues and collections deposited into the Fund shall be 

available for necessary expenses of real property management and related activities not 

otherwise provided for, including operation, maintenance, and protection of federally owned and 

leased buildings; rental of buildings in the District of Columbia; restoration of leased premises; 

moving governmental agencies (including space adjustments and telecommunications 

relocation expenses) in connection with the assignment, allocation and transfer of space; 

contractual services incident to cleaning or servicing buildings, and moving; repair and alteration 

of federally owned buildings including grounds, approaches and appurtenances; care and 

safeguarding of sites; maintenance, preservation, demolition, and equipment; acquisition of 

buildings and sites by purchase, condemnation, or as otherwise authorized by law; acquisition 

of options to purchase buildings and sites; conversion and extension of federally owned 

buildings; preliminary planning and design of projects by contract or otherwise; construction of 

new buildings (including equipment for such buildings); and payment of principal, interest, and 

any other obligations for public buildings acquired by installment purchase and purchase 

contract; in the aggregate amount of [$9,950,560,000] $9,917,667,000, of which: (1) 

[$816,167,000] $745,449,000 shall remain available until expended for construction and 

acquisition (including funds for sites and expenses, associated design and construction 

services, and purchase of currently leased facilities) of additional projects at the following 

locations: 

New Construction

California:

Calexico, Calexico West Land Port of Entry, $98,062,000.

San Diego, San Ysidro Land Port of Entry, $216,828,000.

District of Columbia:

Washington, DHS Consolidation at St. Elizabeths, $250,534,000.

New York:

Alexandria Bay, Land Port of Entry, $105,570,000.

Glenville, Scotia Depot, $15,780,000.

North Dakota:

Pembina, APHIS Building, $5,357,000.

Texas:

Austin, IRS Annex Building, $11,887,000.

Vermont:
 U.S. General Services Administration

 Federal Buildings Fund

FBF-13

Rutland, Robert T. Stafford U.S. Post Office and Courthouse, $6,431,000.

National Capital Region:

Civilian Cyber Campus, $35,000,000:

Provided, That each of the foregoing limits of costs on new construction and acquisition 

projects may be exceeded to the extent that savings are effected in other such projects, but not 

to exceed 10 percent of the amounts included in a transmitted prospectus, if required, unless 

advance [approval is obtained from] notice is transmitted to the Committees on Appropriations 

of a greater amount: Provided further, That all funds for direct construction projects shall expire 

on September 30,[ 2015] 2016, and remain in the Federal Buildings Fund, except for funds for 

projects as to which funds for design or other funds have been obligated in whole or in part prior 

to such date; (2) [$1,302,382,000] $1,256,738,000 shall remain available until expended for 

repairs and alterations, which includes associated design and construction services [, of which 

$593,200,000 is for Major Repairs and Alterations; $370,535,000 is for Basic Repairs and 

Alterations; and $105,000,000 is for Special Emphasis Programs]: 

Repairs and Alterations:

California:

San Francisco, Phillip Burton Federal Building and U.S. Courthouse, 

$29,000,000

Colorado:

Lakewood, Denver Federal Center Building 53, $27,726,000.

District of Columbia:

Washington, Frances Perkins Federal Building, $16,320,000.

Washington, GSA Headquarters Building, $7,091,000.

Washington, Harry S. Truman Federal Building, $15,530,000.

Washington, Herbert C. Hoover Federal Building, $150,900,000.

Washington, Robert C. Weaver Federal Building, $13,375,000.

Washington, Sydney Yates Federal Building, $32,820,000.

Georgia:

Chamblee, Chamblee IRS Parking Garage, $7,409,000.

Illinois:

Chicago, 536 South Clark Street Federal Building, John C. Kluczynski Federal 

Building, and U.S. Post Office Loop Station, $17,116,000.

Massachusetts:
U.S. General Services Administration

Federal Buildings Fund

FBF-14

Boston, Captain John Foster Williams U.S. Coast Guard Building, $8,616,000. 

Boston, Thomas O’Neill Federal Building, $16,146,000.

Michigan:

Battle Creek, Hart Doyle Inouye Federal Center, $11,197,000.

Detroit, 985 Michigan Avenue, $74,913,000.

Detroit, Theodore Levin U.S. Courthouse, $40,499,000.

Missouri:

Kansas City, 2306/2312 Bannister Road, $39,706,000.

St. Louis, Goodfellow Federal Complex, $36,742,000.

New York:

New York, Ted Weiss Federal Building, $11,733,000.

Ohio:

Cincinnati, John Weld Peck Federal Building, $35,373,000.

Oregon:

Portland, 911 Federal Building, $7,439,000.

Portland, BPA Building, $9,050,000.

Texas:

Fort Worth, Fritz G. Lanham Federal Building, $18,044,000.

Utah:

Salt Lake City, Wallace F. Bennett Federal Building, $7,758,000.

Virginia:

Reston, John W. Powell Federal Building, $11,010,000.

Roanoke, Richard H. Poff Federal Building, $15,128,000.

Various Locations:

Region Four Fire Alarm Systems, $5,831,000.

Special Emphasis Programs:

Energy and Water Retrofit and Conservation Measures, $40,000,000.

Consolidation Activities, $100,000,000.

Fire and Life Safety Program, $40,000,000.

Judiciary Court Security Program, $20,000,000.

Basic Repairs and Alterations, $390,266,000:

[Provided, That consolidation projects result in reduced annual rent paid by the tenant agency; 

Provided further, That no consolidation projects exceed $20,000,000 in costs; Provided further, 
 U.S. General Services Administration

 Federal Buildings Fund

FBF-15

That consolidation projects are approved by each of the committees specified in section 3307(a) 

of title 40, United States Code; Provided further, That preference is given to consolidation 

projects that achieve a utilization rate of 130 usable square feet or less per person for office 

space; Provided further, That the obligation of funds under this paragraph for consolidation 

activities may not be made until 10 days after a proposed spending plan and explanation for 

each project to be undertaken has been submitted to the Committees on Appropriations of the 

House of Representatives and the Senate; Provided further, That of the total amount under this 

heading, $69,500,000 shall be available for new construction and repair to meet the housing 

requirements of the Judiciary’s Southern District in Mobile, Alabama;] Provided further, That 

funds made available in this or any previous Act in the Federal Buildings Fund for Repairs and 

Alterations shall, for prospectus projects, be limited to the amount identified for each project, 

except each project in this or any previous Act may be increased by an amount not to exceed 

10 percent unless advance [approval is obtained from] notice is transmitted to the Committees 

on Appropriations of a greater amount: Provided further, That additional projects [for which 

prospectuses have been fully approved] may be funded under this category only if advance 

[approval is obtained from] notice, including a prospectus, is transmitted to the Committees on 

Appropriations: Provided further, That the amounts provided in this or any prior Act for ``Repairs 

and Alterations'' may be used to fund costs associated with implementing security 

improvements to buildings necessary to meet the minimum standards for security in accordance 

with current law and in compliance with the reprogramming guidelines of the appropriate 

Committees of the House and Senate: Provided further, That the difference between the funds 

appropriated and expended on any projects in this or any prior Act, under the heading ``Repairs 

and Alterations'', may be transferred to Basic Repairs and Alterations or used to fund authorized 

increases in prospectus projects: Provided further, That all funds for repairs and alterations 

prospectus projects shall expire on September 30, [2015] 2016 and remain in the Federal 

Buildings Fund except funds for projects as to which funds for design or other funds have been 

obligated in whole or in part prior to such date: Provided further, That the amount provided in 

this or any prior Act for Basic Repairs and Alterations may be used to pay claims against the 

Government arising from any projects under the heading ``Repairs and Alterations'' or used to 

fund authorized increases in prospectus projects; [(3) $109,000,000 for installment acquisition 

payments including payments on purchase contracts which shall remain available until 

expended; (4) $5,387,109,000] (3) $5,671,348 for rental of space which shall remain available 

until expended; and [(5) $2,331,432,000] (4) $2,224,132,000 for building operations which shall 

remain available until expended [,of which $1,150,069,000 is for building services, and 
U.S. General Services Administration

Federal Buildings Fund

FBF-16

$1,062,563,000 is for salaries and expenses; Provided further, That not to exceed 5 percent of 

any appropriation made available under this heading for building operations may be transferred 

between and merged with such appropriations upon notification to the Committees on 

Appropriations of the House of Representatives and the Senate, but no such appropriation shall 

be increased by more than 5 percent by any such transfers; Provided further, That section 521 

of this title shall not apply with respect to funds made available under this heading for building 

operations]: Provided further, That funds available to the General Services Administration shall 

not be available for expenses of any construction, repair, alteration and acquisition project for 

which a prospectus, if required by 40 U.S.C. 3307(a), has not been [approved] transmitted to 

Congress, except that necessary funds may be expended for each project for required 

expenses for the development of a proposed prospectus: Provided further, That funds available 

in the Federal Buildings Fund may be expended for emergency repairs when advance [approval 

is obtained from] notice is given to the Committees on Appropriations: Provided further, That 

amounts necessary to provide reimbursable special services to other agencies under 40 U.S.C. 

592(b)(2) and amounts to provide such reimbursable fencing, lighting, guard booths, and other 

facilities on private or other property not in Government ownership or control as may be 

appropriate to enable the United States Secret Service to perform its protective functions 

pursuant to 18 U.S.C. 3056, shall be available from such revenues and collections: Provided 

further, That revenues and collections and any other sums accruing to this Fund during fiscal 

year [2014] 2015, excluding reimbursements under 40 U.S.C. 592(b)(2) in excess of the 

aggregate new obligational authority authorized for Real Property Activities of the Federal 

Buildings Fund in this Act shall remain in the Fund and shall not be available for expenditure 

except as authorized in appropriations Acts.
 U.S. General Services Administration

 Federal Buildings Fund

FBF-17

Obligations by Object Classification 

(Dollars in Thousands)

FY 2013 FY 2014 FY 2015

Actual Enacted Request

11.1 Full-time permanent...................................... $568,212 $518,451 $505,981

11.5 Other personnel compensation........................ 17,522 11,768 11,768

11.8 Special personnel service payments................. 373 298 298

12.1 Civilian personnel benefits.............................. 171,608 156,715 152,271

13.0 Benefits for former personnel.......................... 376 1,500 3,600

21.0 Travel and transportation of persons................. 8,646 14,410 10,956

22.0 Transportation of things................................. 370 202 247

23.2 Rental payments to others............................. 5,677,161 5,545,877 5,672,569

23.3 Communications, utilities, and misc. charges..... 421,313 443,703 446,453

24.0 Printing and reproduction............................... 547 457 535

25.1 Advisory and assistance services.................... 1,141,886 1,394,853 1,490,231

25.2 Other services from non federal sources........... 44,636 41,711 41,707

25.3 Other goods and services from federal sources.... 319,896 436,886 304,632

25.4 Operation and maintenance of facilities............. 1,178,752 1,384,027 1,454,051

25.7 Operation and maintenance of equipment.......... 49,331 49,008 49,008

25.8 Subsistence and Support of Persons 0 0 0

26.0 Supplies and materials.................................. 8,136 8,324 8,540

31.0 Equipment................................................. 123,862 149,402 154,133

32.0 Land and structures...................................... 743,650 1,132,950 1,440,734

41.0 Grants, subsidies, and contributions................. 45 46 46

42.0 Insurance claims and indemnities.................... 18,132 1,219 1,219

43.0 Interest and dividends................................... 145,133 70,058 12,043

44.0 Refunds.................................................. 12 10 10

99.9 Total Obligations....................................... $10,639,599 $11,361,875 $11,761,032

 Subtotal, PC&B................................. $758,091 $688,732 $673,918

 Subtotal, Non-labor............................. $9,881,508 $10,673,143 $11,087,114
U.S. General Services Administration

Federal Buildings Fund

FBF-18

Obligations by Program 

(Dollars in Thousands)

Summary of FTE by Occupation

Increase/(Decrease)

FTE Obligations FTE Obligations FTE Obligations FTE Obligations

FTE and Obligations:

 1. Construction and Acquisition 405,661 424,953 507,292 82,339

 2. Repairs and Alterations 413,654 713,437 938,882 225,445

 3. Installment Acquisition Payments 118,077 58,019 0 (58,019)

 4. Construction of Lease Purchase Facilities 308 -

 5. Pennsylvania Avenue Activities -

 a) Repairs and Alterations 308 -

 b) Building Operations 19 -

 6. International Trade Center -

 a) Repairs and Alterations 3,790 -

 b) Building Operations 30,531 -

 7. Rental of Space 5,693,804 5,544,656 5,671,348 126,692

 8. Building Operations

 a) Building Services 1,334,565 1,158,869 1,122,727 - (36,142)

 b) Salaries and Benefits 5,924 1,166,646 5,459 1,062,563 5,125 1,121,405 (334) 58,842

 9. Reimbursable 350 1,472,236 350 2,399,378 350 2,399,378 - -

 Total FTE and Obligations 6,274 10,639,599 5,809 11,361,875 5,475 11,761,032 (334) 399,157

 Net Outlays: (1,524,743) (855,234) (49,196) 806,038

FY 2013 Actual FY 2014 Enacted FY 2015 Request For FY 2015 FY 2011 

Actual

FY 2012 

Actual

FY 2013 Actual 

PreConsolidation

FY 2013 

Actual Post 

Consolidation

FY 2014 

Enacted

FY 2015 

Request

Accounting and Budget 425 427 407 13 135 10

Building Management 990 950 888 881 1,000 911

Contracting 743 707 685 685 684 701

Engineering and Architecture 984 954 909 907 950 889

Equipment, Facilities, Maintenance and Service 315 298 286 286 285 287

General Administrative, Clerical, and Office Services 1,242 1,224 1,158 921 975 880

General Business and Industry 1,286 1,297 1,275 1,263 1,200 1,203

Information Technology 57 59 60 - - -

Miscellaneous Occupations 128 124 123 102 55 102

Realty 519 503 484 482 525 493

Total 6,689 6,543 6,274 5,540 5,809 5,475
 U.S. General Services Administration

 Federal Buildings Fund

FBF-19

FY 2015 Capital Program

Program Description – Construction and Acquisition of Facilities

This activity provides for the construction or purchase of facilities and prospectus-level 

extensions to existing buildings. All costs directly attributable to site acquisition, construction, 

and the full range of design and construction services, and management and inspection of 

construction projects are funded under this activity. 
U.S. General Services Administration

Federal Buildings Fund

FBF-20

Construction and Acquisition of Facilities Project List

(Dollars in Thousands)

In Priority Order

FUNDED 

TO DATE SITE DESIGN CONSTRUCTION M&I TOTAL SITE DESIGN CONSTRUCTION M&I TOTAL

New Construction: Washington, DC DHS Consolidation at St. Elizabeths 1,067,636 $ 6,722 $ 211,964 $ 2,444,637 $ 157,925 $ 2,821,248 $ - $ 12,210 $ 219,324 $ 19,000 $ 250,534 $ Civilian Cyber Campus - - TBD TBD TBD TBD TBD TBD 35,000 TBD TBD 35,000 Glenville, NY Scotia Depot (Remediation) - - - 1,664 12,919 1,197 15,780 1,664 12,919 1,197 15,780 Pembina, ND APHIS Building - - 540 284 4,297 236 5,357 540 284 4,297 236 5,357 Austin, TX IRS Annex Building (Building Purchase) - - 9,027 330 2,223 307 11,887 9,027 330 2,223 307 11,887 Rutland, VT Robert T. Stafford U.S. Post Office & Courthouse - - 6,431 - - - 6,431 6,431 - - - 6,431 Subtotal, Executive Agencies 1,067,636 $ 22,720 $ 214,242 $ 2,464,076 $ 159,665 $ 2,860,703 $ 15,998 $ 49,488 $ 238,763 $ 20,740 $ 324,989 $ 

San Diego, CA San Ysidro Land Port of Entry Phase II 524,343 - 89,000 59,734 553,150 39,287 741,171 - 15,158 187,050 14,620 216,828 Calexico, CA Calexico West Land Port of Entry Phase I 23,787 - 5,000 18,787 331,651 14,624 370,062 - - 90,838 7,224 98,062 Alexandria Bay, NY Land Port of Entry Phase I 20,560 - 2,965 21,095 184,833 17,708 226,601 - 3,500 93,216 8,854 105,570 Subtotal, Land Ports of Entry 568,690 $ - $ 96,965 $ 99,616 $ 1,069,634 $ 71,619 $ 1,337,834 $ - $ 18,658 $ 371,104 $ 30,698 $ 420,460 $ 

Total FY 2015 Construction and Acquisition of Facilities Program 1,636,326 $ - $ 119,685 $ 313,858 $ 3,533,710 $ 231,284 $ 4,198,537 $ 15,998 $ 68,146 $ 609,867 $ 51,438 $ 745,449 $ 

ESTIMATED TOTAL PROJECT COST FY 2015 REQUEST
 U.S. General Services Administration

 Federal Buildings Fund

FBF-21

Project Descriptions – Construction and Acquisition of Facilities

California:

Calexico, U.S. Land Port of Entry ..........................................................................$98,062,000

GSA requests $98,062,000 for phase one of a two-phase construction reconfiguration and 

expansion of the existing land port of entry (LPOE) in downtown Calexico, CA. The project 

includes new facilities for pedestrian processing and privately owned vehicle (POV) inspection, 

a new head house to provide supervision and services to the non-commercial vehicle inspection 

area, new administration offices, and a parking structure. These components will occupy the 

existing inspection compound, as well as the site of the former commercial inspection facility

that was decommissioned in 1996 when commercial traffic was redirected to the newly 

completed LPOE six miles east of downtown Calexico. 

On an average day, more than 11,000 POVs and approximately13,000 pedestrians enter the 

U.S. through this LPOE. Existing facilities are undersized relative to current traffic loads and 

obsolete in terms of inspection officer safety and border security. Space required to 

accommodate modern inspection technologies is not available at the existing facility. When this 

project is completed, the port will provide adequate operational space, reduced traffic 

congestion, and a safe environment for employees and visitors.

The FY 2015 request is for Construction ($90,838 thousand) and Management and Inspection 

(M&I) ($7,224 thousand). 

San Ysidro, U.S. Land Port of Entry .................................................................... $216,828,000

GSA requests $216,828,000 to complete design and construction of Phase II reconfiguration 

and expansion of the existing LPOE in San Ysidro, CA.

Phase II replaces the northbound processing buildings that were not demolished during the 

previous phases. Phase II constructs new administration and pedestrian processing buildings,

a central holding facility, and a connection between pedestrian and vehicle facilities. All 

remaining non-historic structures will be demolished. A historic port building will be renovated as 

will a plaza located next to the forthcoming pedestrian processing building.

The current facility, constructed in 1973, no longer effectively supports the U.S. Customs and 

Border Protection (CBP) facilitation and enforcement missions. It is unsafe, undersized, 

outdated, unhealthy and unsightly. It neither adequately supports CBP's unified organization or 

other key programs, such as U.S. VISIT. Unseparated circulation between suspected offenders 

and the traveling public is a public safety concern; relocating Federal office space away from 

public traffic lanes is another safety priority. Moreover, the facility cannot process travelers in a 

timely fashion, with passenger and pedestrian volumes projected to grow significantly in coming 

years. Currently, wait times for northbound vehicles average45 minutes and can stretch to two 

hours during peak traffic.
U.S. General Services Administration

Federal Buildings Fund

FBF-22

The proposed expansion and configuration will improve officer safety, as well as through-put of 

pedestrian and non-commercial traffic. With its huge traffic volume and high rates of seizure, 

arrest and apprehension, San Ysidro is CBP’s highest priority for new construction funding and 

represents the best opportunity at an LPOE to improve national security and facilitate legitimate 

travel. Since submittal of the FY 2009 prospectus, local real estate values, customer space 

requirements, and costs over time have all increased, resulting in a substantial upward revision 

of the project budget. Phase II is being completed after Phase III in order to provide connection 

(part of Phase III scope) to Mexico’s newly completed El Chaparral inspection facility.

The FY 2015 request is for Design ($15,158 thousand), Construction ($187,050 thousand) and 

M&I ($14,620 thousand).

District of Columbia

Washington, Consolidation at St. Elizabeths...................................................... $250,534,000

GSA requests $250,534,000 for the development of the Department of Homeland Security 

(DHS) consolidated headquarters at St. Elizabeths Campus. St. Elizabeths comprises two 

parts. The West Campus is a 176–acre National Historic Landmark that included 70 existing 

buildings containing approximately 1.2 million gsf of existing space. Several existing buildings 

have been demolished to make way for the United States Coast Guard (USCG) headquarters; 

as of September 30, 2013 the 61 buildings remaining contain approximately 1 million gross 

square feet (gsf). The DHS program to be housed on the East Campus requires developing

between 8 and 10 acres of land with supporting infrastructure, plus access to ensure that the 

entire DHS Headquarters operates as one secure campus. 

The St. Elizabeths site is being developed according to guidelines set out in the Master Plan as 

amended and/or as a result of continued compliance with the National Historic Preservation Act 

(NHPA) and National Environmental Policy Act (NEPA) during specific project designs.1 To that 

effect, the United States Commission of Fine Arts (CFA) approved the design of the USCG 

headquarters on November 19, 2009 and the National Capital Planning Commission (NCPC)

approved it January 7, 2010.

Committee approval and appropriations for Phase 1 of the project – construction of USCG’s 

new Munro Building headquarters on the West Campus have already been obtained. 

Development Phase 2-a includes construction of office space to consolidate DHS headquarters 

and the DHS Operations Center (DOC), house various DHS components, and provide amenity 

space. Phase 2-b proposes the construction of a new headquarters facility for the Federal 

Emergency Management Agency (FEMA) plus amenity space and road improvements on site. 

Parking will be included with both sub-phases. Phase 3 will accommodate outstanding DHS 

headquarters elements. The project will include rehabilitation of existing space as well as 

construction of new space. 

Construction of the Munro Building was completed in FY 2013 and GSA proposes to continue 

development of the St. Elizabeths Campus by: completing construction of the access road 

across Shepherd Parkway to Malcolm X Avenue (the Firth Sterling portion of the road was 

completed in conjunction with Phase 1); constructing a new interchange between Malcolm X 

 

1

 The Master Plan can be found at the project’s web site: http://www.stelizabethsdevelopment.com/
 U.S. General Services Administration

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FBF-23

Avenue and Interstate 395; and renovating the buildings adjoining the Center Building, which 

are collectively called the Center Building Complex. When completed, the Center Building 

Complex will house the Department’s executive leadership for management and operations.

This request is for a total of $250,534,000 and includes Design Highway Interchange ($12,210 

thousand), Construction Highway Interchange and Phase 2a ($219,324 thousand), 

Management and Inspection Construction Highway Interchange and Phase 2a ($18,800 

thousand) and Historic Preservation ($200 thousand). The estimated total project cost for St. 

Elizabeths Consolidation is $2,821,248 thousand.

New York: 

Alexandria Bay, U.S. Land Port of Entry ............................................................ $105,570,000

GSA requests approval for construction of facilities to replace the existing LPOE in Alexandria 

Bay, NY and funding for Phase I of this two-phase project. The total project comprises

commercial inspection lanes, a new veterinary services building, an impound lot, a main 

administration building, non-commercial inspection lanes, a new non-commercial secondary 

inspection plaza, new non-intrusive inspection (NII) buildings, and employee and visitor parking 

areas. The project will meet tenant agencies’ current and future needs, while remaining 

adaptable to future changes.

Phase I includes a commercial inspection warehouse with inspection bays, commercial 

inspection lanes with split-level booths that may service commercial or POV traffic, a new 

veterinary services building, impound lot, and a portion of elevated parking. Phase I also 

acquires two necessary parcels of land.

The existing facility does not accommodate current operations. The LPOE commercial cargo 

inspection facility is hampering the safe and secure execution of CBP and other tenant 

agencies' missions. 

The short distance between the international border and the primary commercial inspection area 

is inadequate for vehicle queuing. Given the limited capacity of the US-bound bridges and 

roadways, the Thousand Island Bridge Authority (TIBA) currently limits the number of vehicles 

(in Canada) that can proceed through to the crossing. This results in significant queuing of 

commercial vehicles on the Canadian roadways entering the crossing and sometimes back to 

Highway 401. The bridges are not designed to handle prolonged periods of dead load 

associated with stationary commercial traffic. In addition, removal of significant amounts of rock 

is necessary to allow for increased program and vehicle circulation.

The existing main building does not accommodate the current and future needs of the tenants. 

The existing commercial building barely has enough space to unload a single truck and the 

office component is housed in mobile trailers. The projected increases in traffic volume and 

implementation of new security procedures necessitate an increase in the LPOE workforce 

beyond the capacity of the existing facility. 

The FY 2015 request is for Design ($3,500 thousand), Construction ($93,216 thousand) and 

M&I ($8,854 thousand).
U.S. General Services Administration

Federal Buildings Fund

FBF-24

Glenville, Scotia Depot Remediation .....................................................................$15,780,000

GSA requests $15,780,000 for the remediation of ground water contaminants and soil vapor 

intrusion at the Scotia Depot in Glenville, NY, as required by the Memorandum of Agreement 

(MOA) with New York State. The MOA commits GSA to remedy contamination outlined in the 

State’s March 2010 Record of Decision (ROD) and then monitor these systems for efficacy. 

The project is designed to create a barrier between depot contamination and the Great Flats 

Aquifer for Schenectady County, addressing contamination levels that exceed New York State 

standards. In 2006, New York State testing determined that contamination was present. In 

the ROD that followed, the State of New York determined that injecting a barrier would be the 

most effective method to contain the contamination. By entering into the MOA with New York 

State GSA agreed to assume liability and implement the State's chosen remedy. In 2013, 

GSA, in cooperation with the U.S. Army Corp of Engineers, conducted a pre-design 

investigation study to certify the information contained within the ROD, validate the proposed 

remedies would be effective in addressing the environmental issues, and identify the magnitude 

and proper placement of the remedies. This study supported the barrier method and the 

location for the placement. The data from the pre-design investigation is time sensitive. The 

proposed remedy must be implemented in FY2015, or the findings will no longer be considered 

accurate and retesting will be required which will increase costs. 

The FY 2015 request is for Design ($1,664 thousand), Construction ($12,919 thousand), and 

M&I ($1,197 thousand)

North Dakota:

Pembina, Animal & Plant Health Inspection Facility ..............................................$5,357,000

GSA requests $5,357,000 for the acquisition of approximately eight acres of land along with the 

design and construction of a new 6,685 gross square foot facility for the United States 

Department of Agriculture (USDA) Animal and Plant Health Inspection Service (APHIS) at the 

LPOE in Pembina, ND. Construction of this facility provides a permanent on-site location for 

APHIS at a secure location directly on the port and remedies a potential life safety concern with 

the current location of the temporary modular trailer. The project also improves traffic 

configuration by placing all APHIS operations on the U.S. side of the U.S.-Canada border and 

eliminates private sector rental payments of approximately $317,000 annually. 

The Pembina, ND LPOE is the busiest northern port between Blaine, WA and Detroit, MI, and 

the fifth busiest port on the U.S./Canada border. The port has seen a steady increase in traffic 

flow since its completion in 1997. In 2003 the original APHIS building was demolished to 

accommodate new LPOE Vehicle and Cargo Inspection System (VACIS) requirements. A 

modular trailer was leased and moved to a landscaped median near the center of the port as a 

temporary housing solution for APHIS. On-load inspections are conducted at this location (in 

the median with traffic flowing on both sides). Off-load inspections are performed approximately 

one mile away, in a facility that GSA leases at the Emerson Canadian Port. 

The FY 2015 request is for Site ($540 thousand), Design ($284 thousand), Construction

($4,297 thousand), and M&I ($236 thousand).
 U.S. General Services Administration

 Federal Buildings Fund

FBF-25

Texas:

Austin, IRS Annex Building....................................................................................$11,887,000

GSA requests $11,887,000 to acquire the Internal Revenue Service (IRS) Annex Building 

located at 2021 Woodward Street in Austin, TX. The 144,101 rentable square foot lease 

property is currently occupied entirely by the IRS; the facility also includes 179 parking. In 

addition to acquiring the building, GSA proposes to modernize the HVAC, electrical, and fire and 

life safety systems to improve the safety and efficiency for continued long term use of the 

building. Purchase will reduce the Government’s rental payment to the private sector by

approximately $1,163,000 annually.

The Annex Building is an integral part of the tax return submission processing pipeline. As the 

receiving point for mail during tax season and the holding place for completed returns, this 

building is the first and last stop for tax returns through the pipeline. The Annex is located

within the IRS Service Center campus’ secure perimeter and tied to the Center’s 

communications, security and fire alarm systems. However, the IRS Annex building is the only 

building on the 57-acre campus that is not Federally owned. Ownership of the Annex Building

would provide greater flexibility for future development of the campus site and reduce the 

Government’s rental payment to the private sector by approximately $1,163,000 annually. 

For the building to come under federal ownership, a recent assessment concluded that life 

safety improvements were in order: upgrading some demising walls to maintain fire resistance 

per code; repairing the dry sprinkler system; and lead paint abatement. It also determined that 

mechanical upgrades to the HVAC are needed for energy efficiency and tenant comfort and that 

electrical upgrades included replacing the main switch board to comply with code. Finally, 

construction of rooftop walkways will preserve the integrity of the roof surface.

The FY 2015 request is for Site ($9,027 thousand) Design ($330 thousand), Construction 

($2,213 thousand), and M&I ($307 thousand).

Vermont:

Rutland, Robert T. Stafford U.S. Post Office & Courthouse...................................$6,431,000

GSA requests $6,431,000 to acquire the Robert T. Stafford U.S. Post Office and Courthouse 

(Stafford POCH) located at 151 West Street, Rutland, VT. GSA leases space within the 

building, which is currently under the custody and control of the United States Postal Service 

(USPS). Acquisition of this building will allow GSA to continue serving the U.S. Courts and 

other Federal agencies in the city of Rutland.

The building contains approximately 63,500 rentable square feet (rsf). GSA currently leases 

approximately 34,452 rsf, which is in good condition. The remaining space is vacant or 

occupied by the USPS. However, the USPS operations have become increasingly incompatible 

with the Courts security requirements. USPS owns another building on an adjacent property, 

known as the Carrier Annex, and plans to consolidate all operations into that Annex and dispose 

of the main building. GSA’s acquisition will also allow for lease cost avoidance of approximately 

$660,000 annually.

The FY 2015 request is for acquisition ($6,431 thousand).
U.S. General Services Administration

Federal Buildings Fund

FBF-26

National Capital Region:

Civilian Cyber Campus ...........................................................................................$35,000,000

GSA requests $35,000,000 to prepare for the development of requirements and the design of a 

Federal civilian cyber security campus that will house federal employees and contractors 

dedicated to the civilian cyber security mission. It is envisioned that the campus will be 

developed so as to be large enough to accommodate possible further expansion and/or colocation with private sector partners.

A resilient, efficient, Federally-owned civilian cyber campus solution will serve the expanding 

needs of the federal government’s global civilian cyber security efforts and is the most cost 

effective means to support this long term mission. The civilian cyber security mission has been 

defined in statutes, directives, orders, and policies including but not limited to: Comprehensive 

National Cybersecurity Initiative of 2008, the NSPD-54 / HSPD-23 Cyber Security Policy of 

2008, Executive Order 16363 of 2013 – Improving Critical Infrastructure Cybersecurity, and 

PPD-21 of 2013 – Critical Infrastructure Security and Resilience. The National Protection and 

Programs Directorate (NPPD) within DHS and the Federal Bureau of Investigation (FBI) within 

DOJ have been principally charged with leading this initiative. Other agencies involved include 

the Office of Intelligence & Analysis (I&A) and the US Secret Service (USSS) within DHS.

Overall goals of the project are as follows: 1) create a centralized, visible, civilian-led 

organization that presents a globally fused cyber capability; 2) ensure scalability to 

accommodate future needs; 3) promote secure collaboration while leveraging shared 

capabilities and infrastructure; 4) enhance public-private cooperation with increased 

opportunities for collaboration; 5) optimize federal resources (capital + human + physical); and 

6) develop a working environment to support the recruitment, development, and retention of 

best-in-class cyber professionals.

This request is for Requirements Development and Design ($35,000 thousand).
 U.S. General Services Administration

 Federal Buildings Fund

FBF-27

Program Description – Repairs and Alterations 

This activity provides for repairs and alterations of existing buildings as well as associated 

design and construction services. Protection of the Government's investment, health and safety 

of building occupants, transfer of agencies from leased space, and cost effectiveness are the 

principal criteria used in establishing priorities. Repairs to prevent deterioration and damage to 

buildings, their support systems, and operating equipment are given priority.
U.S. General Services Administration

Federal Buildings Fund

FBF-28

Repairs and Alterations Project List

(Dollars in Thousands)

In Priority Order

FUNDED

 TO DATE DESIGN CONSTRUCTION M&I TOTAL DESIGN CONSTRUCTION M&I TOTAL

Nonprospectus (Basic) Repairs and Alterations Program - $ - $ - $ 390,266 $ - $ 390,266 $ - $ 390,266 $ - $ 390,266 $ Major Repairs and Alterations Chamblee, GA Chamblee IRS Parking Garage - $ - $ - $ 6,619 $ 790 $ 7,409 $ - $ 6,619 $ 790 $ 7,409 $ Various Locations, Region 4 Fire Alarm Systems - - 793 4,406 632 5,831 793 4,406 632 5,831 Battle Creek, MI Hart Doyle Inouye Federal Center - - 986 9,222 989 11,197 986 9,222 989 11,197 Washington, DC Frances Perkins Federal Building Fire Alarm System - - 1,500 13,380 1,440 16,320 1,500 13,380 1,440 16,320 Washington, DC Robert C. Weaver Federal Building - - 1,250 10,940 1,185 13,375 1,250 10,940 1,185 13,375 Reston, VA John W. Powell Federal Building - - 1,060 8,970 980 11,010 1,060 8,970 980 11,010 Washington, DC Sydney Yates Federal Building - - 440 29,480 2,900 32,820 440 29,480 2,900 32,820 Portland, OR BPA Building - - 817 7,422 811 9,050 817 7,422 811 9,050 Portland, OR 911 Federal Building - - 683 6,083 673 7,439 683 6,083 673 7,439 New York, NY Ted Weiss Federal Building - - 1,004 9,811 918 11,733 1,004 9,811 918 11,733 Washington, DC Harry S. Truman Federal Building - - 1,260 12,980 1,290 15,530 1,260 12,980 1,290 15,530 Washington, DC GSA Headquarters Building - - 724 5,731 636 7,091 724 5,731 636 7,091 Salt Lake City, UT Wallace F. Bennett Federal Building - - 620 6,538 600 7,758 620 6,538 600 7,758 Kansas City, MO 2306/2312 Bannister Road - - 3,311 33,328 3,067 39,706 3,311 33,328 3,067 39,706 Roanoke, VA Richard H. Poff Federal Building - - 1,076 12,762 1,290 15,128 1,076 12,762 1,290 15,128 St. Louis, MO Goodfellow Federal Complex - - 2,851 31,674 2,217 36,742 2,851 31,674 2,217 36,742 Boston, MA Thomas O'Neill Federal Building - - 1,307 13,763 1,076 16,146 1,307 13,763 1,076 16,146 Washington, DC Herbert C. Hoover Federal Building 256,560 28,410 681,671 45,833 755,914 - 141,900 9,000 150,900 Boston, MA Captain John Foster Williams U.S. Coast Guard Building - - 1,655 6,252 709 8,616 1,655 6,252 709 8,616 Lakewood, CO Denver Federal Center Building 53 - - 2,329 23,400 1,997 27,726 2,329 23,400 1,997 27,726 Fort Worth, TX Fritz G. Lanham Federal Building - - 1,737 14,541 1,766 18,044 1,737 14,541 1,766 18,044 Detroit, MI Theodore Levin U.S. Courthouse - - 10,200 118,968 10,541 139,709 - 37,539 2,960 40,499 San Francisco, CA Phillip Burton Federal Building and U.S.Courthouse - - 2,000 25,000 2,000 29,000 2,000 25,000 2,000 29,000 Chicago, IL 536 S. Clark Street Federal Building, John C. Kluczynski Federal Building and U.S. Post Office Loop Station - - 1,230 14,626 1,260 17,116 1,230 14,626 1,260 17,116 Cincinnati, OH John Weld Peck Federal Building - - 2,872 29,725 2,776 35,373 2,872 29,725 2,776 35,373 Detroit, MI 985 Michigan Avenue - - 7,834 61,073 6,006 74,913 7,834 61,073 6,006 74,913 Subtotal, Major Repairs & Alterations 256,560 $ - $ 66,013 $ 1,092,941 $ 84,340 $ 1,243,294 $ 27,403 $ 471,741 $ 39,926 $ 666,472 $ Special Emphasis Programs Energy and Water Retrofit and Conservation Measures - $ - $ - $ 40,000 $ - $ 40,000 $ - $ 40,000 $ - $ 40,000 $ Consolidation Activities - - - 100,000 - 100,000 - 100,000 - 100,000 Fire and Life Safety Program - - - 40,000 - 40,000 - 40,000 - 40,000 

Judiciary Court Security Program - - - 20,000 - 20,000 - 20,000 - 20,000 Subtotal, Special Emphasis Programs - $ - $ - $ 200,000 $ - $ 200,000 $ - $ 200,000 $ - $ 200,000 $ 

Total FY 2015 Repairs and Alterations Program 256,560 $ - $ 66,013 $ 1,683,207 $ 84,340 $ 1,833,560 $ 27,403 $ 1,062,007 $ 39,926 $ 1,256,738 $ 

(Dollars in Thousands)

REPAIRS AND ALTERATIONS SUMMARY OF FY 2015 PROGRAM

ESTIMATED TOTAL PROJECT COST FY 2015 Request
 U.S. General Services Administration

 Federal Buildings Fund

FBF-29

Project Descriptions – Repair and Alterations

California:

San Francisco. Phillip Burton Federal Building & U.S. Courthouse....................$29,000,000

GSA requests $29,000,000 for a repair and alteration project to upgrade building systems and 

reconfigure existing space at the Phillip Burton Federal Building & U.S. Courthouse (Phillip 

Burton). The scope of work includes replacement of the roof and associated support structure 

elements, cold and hot water risers, window film, and the extension of external air-intakes. The 

project also includes buildout and backfill of approximately 15,000 square feet of vacant space 

for the U.S. Bankruptcy Court which will move to Phillip Burton from leased space. This 

relocation will reduce lease payments to the private sector by approximately $1,800,000

annually. 

The FY 2015 request is for Design ($2,000 thousand), Construction ($25,000 thousand), and 

M&I ($2,000 thousand).

Colorado:

Lakewood, Denver Federal Center Building 53.....................................................$27,726,000

GSA requests $27,726,000 for a repair and alteration project to undertake system and 

architectural repairs as well as alteration of existing space at the Denver Federal Center (DFC), 

Building 53, at West 6th Avenue & Kipling Street, in Lakewood, CO. In addition to addressing 

roof, HVAC, and window deficiencies, the project will allow for backfill of approximately 78,000 

rsf from a leased location and reduce annual lease payments to the private sector by 

approximately $2,200,000 annually. 

Building 53 has not been modernized since the 1970s and many of the building systems have 

become worn, inefficient, outdated and unreliable. Completion of this project will significantly 

reduce vacant space in the building. The project will also reconfigure space to create a more 

efficient layout, helping the Forest Service reduce its footprint by approximately 12,000 rsf and

meet its new space utilization standards. 

The FY 2015 request is for Design ($2,329 thousand), Construction ($23,400 thousand), and 

M&I ($1,997 thousand).

District of Columbia

Washington, Frances Perkins Building.................................................................$16,320,000

GSA requests $16,320,000 for a repair and alteration project to replace the fire alarm system at 

the Frances Perkins Building (Perkins Building) located at 200 Constitution Avenue, NW, 

Washington, DC. The proposed project will replace the obsolete fire alarm system with a new 

emergency communication system which broadcasts information to building occupants in an 

emergency. The new system will be designed and installed according to the requirements in 

GSA PBS-P100, Facilities Standards for the Public Buildings Service.
U.S. General Services Administration

Federal Buildings Fund

FBF-30

The existing fire alarm system does not comply with GSA PBS-P100 nor the International 

Building Code, which requires that an emergency communication system be able to broadcast 

information in an emergency to building occupants. In addition, many of the alarm circuits are 

overloaded, causing concern about system reliability during an emergency. The system 

manufacturer no longer supports the equipment, making it difficult to find repair parts. 

The FY 2015 request is for Design ($1,500 thousand), Construction ($13,380 thousand) and 

M&I ($1,440 thousand).

Washington, GSA Headquarters Building...............................................................$7,091,000

GSA requests $7,091,000 for an alteration project to upgrade the elevators at the 1800 F Street 

Building, NW, Washington, DC to ensure their long-term reliability. . 

The elevator cabs, parts and components are original to the building and, due to age need to be 

replaced and are no longer supported by the manufacturer. Replacement parts are becoming 

increasingly difficult to find. The limited availability of parts results in the common occurrence of 

expensive and sustained outages. In light of the increased population resulting from the recently 

completed partial modernization and expansion, outages have become more prevalent. Such

occurrence disrupt building tenants and operations. 

The FY 2015 request is for Design ($724 thousand), Construction ($5,731 thousand) and M&I 

($636 thousand).

Washington, Harry S. Truman Building.................................................................$15,530,000

GSA requests $15,530,000 for a repair and alteration project to upgrade elevators at the Harry 

S. Truman (Main State) Building located at 2201 C Street, NW, Washington, DC. Continued 

deterioration of the elevators and increasing building population have accelerated the need for 

these repairs. 

The elevators have long since reached the end of their serviceable life and are in irreparable 

condition that must be addressed immediately. The elevators are susceptible to reliability 

problems and the continued availability of repair parts is uncertain. In addition, as the building 

population continues to increase, the existing elevators are unable to meet usage demands. The 

building lacks an emergency power backup system, required by code, that would power the 

elevators in the event of a power failure.

The FY 2015 request is for Design ($1,260 thousand), Construction ($12,980 thousand) and 

M&I ($1,290 thousand).
 U.S. General Services Administration

 Federal Buildings Fund

FBF-31

Washington, Herbert C. Hoover Building............................................................ $150,900,000

GSA requests $150,900,000 for the ongoing modernization of the Herbert C. Hoover Building 

(HCHB), headquarters of the Department of Commerce (DOC). HCHB, a National Historic 

Landmark, located at 1401 Constitution Avenue, NW, Washington, DC that provides 

approximately 1 million usable square feet (usf) of space for the DOC. The building is being 

modernized in eight phases. The first phase completed the design of the entire modernization 

and the subsequent construction phases are addressing the building in equal segments. This 

request for appropriations addresses Phase V, which will modernize approximately 1/7th of the 

building and undertake interior renovations to improve inefficient and outdated workplace layout. 

When the interior reconfiguration is complete, the building will be able to accommodate 

additional employees from several leased and one owned locations, saving taxpayers

approximately $4,000,000 annually in leased costs.

The HCHB is an important asset in GSA’s inventory due to its value, prominent location and 

National Historic Landmark status. Aside from an HVAC upgrade in the 1960’s and roofing and 

elevator renovations in the 1990’s, the current modernization is the first major renovation in the 

building’s history. 

The HVAC, electrical, and plumbing systems have deficiencies that affect tenant comfort, 

building operations, energy efficiency, and maintenance costs. Requiring frequent temporary 

repairs and replacement, the current HVAC system suffers poor distribution, ductwork problems, 

insufficient inflow of fresh air, inadequate zoning, and obsolete or non-existent temperature 

controls. Electrical service, distribution, and branch wiring systems have exceeded life 

expectancy. Much of the plumbing can no longer be maintained and needs replacement with 

many of the building’s 120 restrooms not meeting accessibility regulations. 

Existing sprinkler and fire alarm systems cover only a small percentage of the occupied space. 

These existing systems cannot be expanded and do not meet updated code requirements. 

Replacement of flat roofs and their drainage systems will address leakage problems. 

Refurbishment of existing windows and installation of thermal blast windows will enhance 

energy conservation, reduce outside air seepage, and improve building security. 

Prior Authority Prior Funding

Fiscal Year 2003 $ 4,100,000

Fiscal Year 2004 12,800,000

Fiscal Year 2006 54,491,000

Fiscal Year 2009 (Recovery Act) 185,169,000

Fiscal Year 2014 77,356,000

Total $333,916,000

This request is for Phase V Construction ($141,900 thousand) and Phase V Management and 

Inspection ($9,000 thousand). The estimated total project cost is $755,914 thousand. 
U.S. General Services Administration

Federal Buildings Fund

FBF-32

Washington, Robert C. Weaver Building...............................................................$13,375,000

GSA requests $13,375,000 for a repair and alteration project to replace the fire alarm system at 

the Robert C. Weaver Building (Weaver Building) located at 451 7th Street, SW, Washington, 

DC. The proposed project will replace the existing fire alarm system with a new emergency 

communication system which broadcasts information to building occupants in an emergency. 

The new system will be designed and installed according to GSA PBS-P100, Facilities 

Standards for the Public Buildings Service.

The existing fire alarm system is obsolete and does not comply with GSA PBS-P100 nor the

International Building Code which require an emergency communication system be installed to 

be able to broadcast information in an emergency to building occupants. The existing system 

utilizes bells and horns to notify occupants of potential danger. In addition, the system is no 

longer supported by the manufacturer, and many of its key components are limited in 

availability. Lastly, the alarm’s audibility is not adequate in all areas of the building. 

The FY 2015 request is for Design ($1,250 thousand), Construction ($10,940 thousand) and 

M&I ($1,185 thousand).

Washington, Sidney R. Yates Federal Building ....................................................$32,820,000

GSA requests $32,820,000 for a repair and alteration project to undertake façade repairs and to 

replace chillers at the Sidney R. Yates Federal Building (Yates FB) at 1400 Independence 

Avenue, SW, Washington DC. The proposed project is necessary for the continued, safe 

occupancy of the highly prominent, 133 year old Federal Building which is situated between the 

Washington Monument and the National Holocaust Museum. The building is listed on the 

National Historic Register.

Exterior masonry walls are severely deteriorated and disintegrating. Dislodged debris is falling 

onto adjacent sidewalks, posing a danger to pedestrians. Recently, GSA conducted an

emergency re-pointing on the north side of the building using minor repair and alteration funds. 

Also, the flashing, gutters, and leader heads are loose, corroded, and/or leaking, posing a water

infiltration threat to the building envelope. 

The building chillers are obsolete, inefficient, at the end of their serviceable life and plagued by

expensive breakdowns and protracted outages. The manufacturer no longer supports the 

system and replacement parts are becoming increasingly difficult to find. Further complications 

are arising from the increased population resulting from U.S. Forest Service’s ongoing 

consolidation into the building.

The FY 2015 request is for Design ($440 thousand), Construction ($29,480 thousand) and M&I 

($2,900 thousand).
 U.S. General Services Administration

 Federal Buildings Fund

FBF-33

Georgia:

Chamblee, IRS Annex Parking Deck........................................................................$7,409,000

GSA requests $7,409,000 for a repair project to address structural deficiencies at the parking 

deck adjoining the IRS Service Center Annex located at 2385 Chamblee Tucker Road in 

Chamblee, GA. The parking deck is experiencing excessive slab deflections, cracking and 

stress at the elevated slabs and other serviceability and strength issues. The ongoing problems 

have already led to the closure of more than 100 parking spots though the repairs proposed 

through this project will extend the service life of the parking deck and return it a condition safe 

for continued use and extend its serviceable life. 

The FY 2015 request is for Construction ($6,619 thousand) and M&I ($790 thousand).

Illinois:

536 S. Clark Street Federal Building, John C. Kluczynski Federal Building and U.S. Post 

Office Loop Station ................................................................................................$17,116,000

GSA requests $17,116,000 for a repair and alteration project for the reconfiguration and 

alteration of currently vacant space at the 536 S. Clark Street Federal Building, US Post Office 

Loop Station, and John C. Kluczynski Federal Building in Chicago, IL. This project will 

consolidate functions of the Department of Homeland Security, Immigration, Customs 

Enforcement (DHS-ICE) and meet the long term housing needs. The proposed consolidation 

will reduce Federally owned vacant space, improve space utilization, and allow the Government 

to release leased space and eliminate annual lease payments to the private sector by 

approximately $2,700,000 annually. 

The FY 2015 request is for Design ($1,230 thousand), Construction ($14,626 thousand) and 

M&I ($1,260 thousand).

Massachusetts:

Boston, Captain John Foster Williams U.S. Coast Guard Building ......................$8,616,000

GSA requests $8,616,000 for a repair and alteration project to provide critical structural 

foundation and site repairs at the Captain John Foster Williams U.S. Coast Guard Building 

(Williams Building) in Boston, MA. The project will eliminate the building’s deleterious water 

infiltration, and sustain safe, public waterfront access at the site.

Multiple engineering assessment reports have identified structural and waterproofing 

deficiencies caused by significant water infiltration in the Williams Building’s multi-level 

basement. The continued deterioration of the seawall has caused recurring maintenance issues 

for nearly 50 years, necessitating emergency patches, repairs, and work-arounds. In addition, 

the pedestrian causeway, used regularly by the public to access transportation and other 

waterfront activities, is deteriorated and could become unstable if not restored. Indeed, this coal 

vault is the primary conduit for tidal and rainwater infiltration into the building’s basement 

resulting in costly structural, mechanical and electrical damage. If not addressed, the
U.S. General Services Administration

Federal Buildings Fund

FBF-34

foundation damage will mount. An increase in electrical and mechanical system outages is to 

be expected, as existing sump wells and pumps cannot mitigate recurring water incursion alone. 

All future scenarios include sever disruption to the tenant agencies.

The FY 2015 request is for Design ($1,655 thousand), Construction ($6,252 thousand), and M&I 

($ 709 thousand).

Boston, Thomas P. O’Neill Jr. Federal Building ...................................................$16,146,000

GSA requests $16,146,000 for a repair and alteration project to replace and upgrade multiple 

failing and deficient systems at the Thomas P. O’Neill, Jr., Federal Building (O’Neill Building) 

located at 10 Causeway Street, Boston, MA. The replacement of the fire alarm system, building 

automation system, and upgrade of the elevators will allow for improved building performance 

and code compliance. 

The building’s 30-year-old elevators have exceeded their useful life and require replacement to 

eliminate deficiencies and failures. Currently the system is characterized by antiquated 

passenger cars, diminishing parts availability, increased personnel entrapments due to failing 

door operators, and increased of maintenance cycles. Service outages are common.

Replacement of the building automation system will allow for improved tenant comfort and 

better monitoring and control over the O'Neill Building’s energy consumption. The current 

system, responsible for managing and monitoring all mechanical, electrical and plumbing 

systems, is antiquated and has exceeded its useful life

The existing fire alarm system is outdated with replacement parts that are difficult to source and 

should be upgraded to meet current code requirements. The proposed project improves life 

safety by providing reliable fire detection and improved mass notification coverage in the high 

density, high-rise building. Upgrades will improve reliability of fire reporting to local emergency 

responders and provide tactical system aides to reduce personnel life safety and property risks. 

The FY 2015 request is for Design ($1,307 thousand), Construction ($13,763 thousand) and 

M&I ($1,076 thousand).

Michigan:

Battle Creek, Hart-Dole-Inouye Federal Center.....................................................$11,197,000

GSA requests $11,197,000 for a repair and alteration project to upgrade components of the fire 

and life safety systems at the Hart-Dole-Inouye Federal Center in Battle Creek, MI. Alterations 

to improve the life safety condition of the facility involve replacement of components of the fire 

alarm and smoke detection systems; restoration of fire separation in the tunnels that connect 

multiple buildings, elevator recall and air handling unit shutdown; repairs to the fire suppression 

system and abatement of hazardous materials. 

The fire alarm backbone was modernized in 2009; however, peripheral fire alarm devices were 

not replaced and are beyond their useful lives. Most of the devices were installed in the mid1990s and are no longer compliant with code. Currently, notification devices lack the strobes 

that alert hearing impaired occupants. Elevators do not have firefighter recall and automatic 
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shutdown is lacking on many air handling units. In the tunnels that connect multiple buildings, 

fire doors are inoperable and do not provide adequate fire separation. Fire sprinklers do not 

extend into all critical areas of the facility while some existing fire sprinklers are failing. 

The FY 2015 request is for Design ($986 thousand), Construction ($9,222 thousand) and M&I 

($989 thousand).

Detroit, 985 Michigan Avenue ................................................................................$74,913,000

GSA requests $74,913,000 for a repair and alteration project to consolidate Federal agencies 

into 985 Michigan Avenue in Detroit, MI. The consolidation of Federal agencies will decrease 

reliance on leased space, improve space utilization and incorporate alternative workplace 

solutions. The building’s systems will also be renovated to extend service life and improve 

operational efficiency. 

This project will create a multi-tenant building by significantly reducing the IRS’s footprint in the 

building and relocating a number of Federal agencies (including the IRS) from leased facilities 

into the Federally owned facility. The Government is expected to achieve $11,000,000 per year

in annual lease cost avoidance. The cost avoidance estimate includes costs associated with 

relocating the IRS from 985 Michigan Avenue to leased space in the event that funds for this 

project are not appropriated. 

The FY 2015 request is for Design ($7,834 thousand), Construction ($61,073 thousand) and 

M&I ($6,006 thousand).

 

Detroit, Theodore Levin U.S. Courthouse .............................................................$40,499,000

GSA requests $40,499,000 for Phase II of a multi-phase alteration project to correct serious 

building deficiencies at the historic Theodore Levin U.S. Courthouse (Levin Courthouse) located 

at 231 West Lafayette Boulevard in Detroit, MI. The Levin Courthouse houses the Federal 

Courts for the Eastern District of Michigan. The proposed multi-phase project will correct 

deficiencies to ensure a safe and reliable work environment for long term occupancy by Federal

agencies. The proposed scope for Phase II includes replacement of the fire alarm electrical 

distribution systems, emergency generator, perimeter fan coils, passenger elevators and the 

extension of the fire sprinkler system.

The FY 2015 request is for Construction ($37,539 thousand) and M&I ($2,960 thousand)

Missouri:

Kansas City, 2306/2312 Bannister Road................................................................$39,706,000

GSA requests $39,706,000 for a repair and alteration project to upgrade the building systems 

and infrastructure of 2306/2312 Bannister Road, Kansas City, MO, to meet the long-term 

requirements and ongoing mission of the United States Marine Corps (USMC) data center. The 

enhancements will also support consolidation of other agencies into currently vacant space. 

When the USMC moved into the 2306 portion of the building in 2008, USMC did so only on a 

short term basis to run their Information Technology Data Center. The recent commitment by

USMC to both continue and expand their presence at Bannister Road has led GSA to 
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reconsider the holding strategy and identify additional tenants for the building. FEMA, Army 

North, and GSA Field Office will be relocating from the Bannister Federal Complex (BFC) to 

Bannister Road thereby avoiding the need to lease space and the largest proposed tenant for 

the remaining portion of the 2312 building is USDA Farm Service Agency, which is currently 

located in a warehouse lease near BFC. Relocating this function to Federal space will avoid the 

need for a new lease. 

The proposed project will replace the existing roof with energy efficient reflective material; 

accompanying improvements to drainage and fall protection will be undertaken. HVAC 

distribution system and piping will be replaced alongside associated interior alterations. The

two electrical substations will be refurbished. The project also resolved deficiencies in the fire 

protection system and enhances compliance with National Fire Protection Association (NFPA) 

guidelines and Occupational Safety and Health Administration (OSHA) regulations regarding 

emergency egress. Site improvements consist of limited sewer system replacement, street 

reconstruction, limited installation of new storm sewers, sidewalk and exterior lighting 

replacement, landscaping with native vegetation, repairs to the parking lot, masonry tuck 

pointing, and dock and building ramp repairs.

The FY 2015 request is for Design ($3,311 thousand), Construction ($33,328 thousand), and 

M&I ($3,067 thousand).

St. Louis, Goodfellow Federal Complex................................................................$36,742,000

GSA requests $36,742,000 for a repair and alteration project to renovate critical life safety 

infrastructure at the Goodfellow Federal Complex (Goodfellow), located at 4300 Goodfellow 

Boulevard, St. Louis, MO. 

Goodfellow’s electrical vaults and utility tunnel systems are in critical disrepair and in violation of 

OSHA 

regulation 29CFR 1910 and NFPA life safety 101 guidelines. Access to the vaults has been 

severely restricted due to safety concerns. Updating the infrastructure of the complex is 

essential to its long term viability.

The 60 year old utility tunnels are underground conduits for electrical infrastructure, telecom 

network cabling, and domestic potable and fire protection water supplies for various buildings on 

the campus. Due to insufficient exterior water proofing the tunnels are experiencing water 

infiltration that is causing: delamination of interior tunnel walls; corrosion of structural steel 

piping supports, lighting fixtures, and some stream piping; and mold and humidity, which is 

negatively impacting indoor air quality of the buildings above. Deterioration may cause leakage 

and loss of water for domestic and fire protection water. Loss of any utility services would 

impact the 24/7 mission critical operations for many of the tenants. Also, since many of the 

tenants, including the Defense Information Systems Agency, run utility lines in the tunnels, the 

condition of the tunnels present an unsafe environment for employees and contractors who are 

required to perform work on the lines in the tunnels. 

The FY 2015 request is for Design ($2,851 thousand), Construction ($31,674 thousand), and 

M&I ($2,217 thousand).
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New York:

New York, Ted Weiss Federal Building .................................................................$11,733,000

GSA requests $11,733,000 for a repair and alteration project to modernize elevators in the Ted 

Weiss Federal Building (Weiss FB) located at 290 Broadway, New York, NY. The elevators are 

inefficient and costly to maintain.

The 20 year old elevators have exceeded their useful life and are in need upgrades. Currently, 

when the elevators are taken out of service for repairs and service, the interruptions negatively 

impact the tenants. Upgrades to the elevators will improve serviceability. As GSA continues its 

effort to optimize inventory, increase building population, improve space utilization, and reduce 

the Government’s environmental footprint, the project will deliver a reliable and safe conveyance 

system that is critical for the building occupants. 

The FY 2015 request is for Design ($1,004 thousand), Construction ($9,811 thousand) and M&I 

($918 thousand).

Ohio:

Cincinnati, John Weld Peck Federal Building.......................................................$35,373,000

GSA requests $35,373,000 for a repair and alteration project to reconfigure approximately 

233,000 usf of space at the John Weld Peck Federal Building (Peck FB) in Cincinnati, OH. The 

project will meet the long term housing needs of the IRS, Department of Energy (DOE), OSHA, 

Social Security Administration Office of Disability Adjudication and Review (SSA ODAR), and 

the U.S. Trustees. The IRS is currently located in the Peck FB as well as two leased locations 

in Cincinnati. The DOE, OSHA, SSA ODAR, and U.S. Trustees are currently housed in leased 

facilities. This project will decrease reliance on leased space, reduce Federally owned vacant 

space, and increase space utilization of the Peck FB.

Consistent with the June 2010 Presidential Memorandum, Disposing of Unneeded Federal Real 

Estate and the Office of Management and Budget (OMB) Memorandum M-12-12, Promoting 

Efficient Spending to Support Agency Operations, the project will consolidate all IRS space in 

Cincinnati, OH into Federal space and will relocate the DOE, OSHA, SSA ODAR, and the U.S. 

Trustees from leased to Federally owned space. Nearly 176,000 usf of leased space will be 

eliminated when agencies consolidate into the Peck FB. It is estimated that annual private 

sector lease payments will be reduced by approximately $4,400,000. 

The FY 2015 request is for Design ($2,872 thousand), Construction ($29,725 thousand) and 

M&I ($2,776 thousand).
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Oregon:

Portland, 911 Federal Building.................................................................................$7,439,000

GSA requests $7,439,000 for a repair and alteration project to upgrade the electrical system in 

the 911 Federal Building located at 911 NE 11th Avenue, Portland, OR. The majority of the 

electrical equipment is original to the 1953 construction and has reached the end of its useful 

life. Because the parts for the equipment are no longer manufactured, replacement parts have 

to be specially fabricated at great expense, and repairs cause service interruptions for extended 

periods. 

While undertaking upgrades to the electrical system, sub- metering will be installed at strategic 

locations through-out the building to aid with energy conservation. Moreover, the building does 

not have a lightning protection system and a facility condition assessment indicated that the 

building has a moderate to high risk of lightning strike, per National Fire Protection Association 

standards. 

The FY 2015 request is for Design ($683 thousand), Construction ($6,083 thousand), and M&I 

($673 thousand).

Portland, Bonneville Power Administration Federal Building ...............................$9,050,000

GSA requests $9,050,000 for a repair and alteration project to upgrade multiple building 

systems at the Bonneville Power Administration (BPA) Federal Building located at 905 NE 11th

Avenue, Portland, OR. Alterations include upgrading the obsolete elevator system and 

relocation of air intakes from the street level to reduce the amount of ground contamination 

entering the ventilation system. 

The proposed improvement to the elevator system include code compliant upgraded to eight 

existing traction passenger elevators, which will improve safety, reliability, and serviceability. 

The eight existing traction passenger elevators will be converted to a destination dispatch 

control system with regenerative drives. 

The FY 2015 request is for Design ($817 thousand), Construction ($7,422 thousand), and M&I 

($811 thousand).

Texas:

Fort Worth, Fritz G. Lanham Federal Building ......................................................$18,044,000

GSA requests $18,044,000 for a repair and alteration project to upgrade and renovate building 

components and systems and to abate hazardous materials at the Fritz G. Lanham Federal 

Building (FB), located at 819 Taylor Street, Fort Worth, Texas. The proposed renovations 

include upgrades to the building’s fire protection system. 

The fire sprinkler system piping for the 2nd through 14th floors of the Lanham FB is constructed 

of Chlorinated Polyvinyl Chloride (CPVC) material. While the first floor piping was previously 

replaced, the remaining piping is extremely brittle, is easily damaged, and has broken on 
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multiple occasions resulting in millions of dollars in damage. Further complicating the issue, the 

sprinkler system is contained within the ceiling plenum requiring the system to be drained 

whenever maintenance of the adjacent systems takes place – a costly step. 

The sanitary waste water piping and ventilation piping has deteriorated over time. While microfractures in the piping have caused small leaks in multiple locations, more significant breakage 

has resulted in extensive flooding, property damage. Micro-fractures in the ventilation piping 

allow sewer gas to leak into building spaces, negatively impacting indoor air quality significantly. 

Similarly, the drinking fountain water system is in poor condition. First, fixtures are obsolete and 

are not incompliance with the Architectural Barriers Act Accessibility Standards (ABAAS). 

Second, the piping system regularly becomes clogged, flooding, and causing the closest water 

fountain to overflow with waste water. Third, the equipment that chills the drinking water and 

circulates it through the building has reached its useful life; this equipment is no longer 

manufactured and parts are difficult to locate. Finally, the equipment leaks consistently, which 

is detrimental to GSA’s water conservation objectives. 

The FY 2015 request is for Design ($1,737 thousand), Construction ($14,541 thousand), and 

M&I ($1,766 thousand).

Utah:

Salt Lake City, Wallace F. Bennett Federal Building ..............................................$7,758,000

GSA requests $7,758,000 for a repair and alteration project to undertake multiple system 

upgrades and to reconfigure and renovate existing space at the Wallace F. Bennett Federal 

Building (Bennett FB), located at 125 S. State Street, Salt Lake City, UT. The proposed project 

will upgrade elevators, restrooms, sprinklers, and efficiently reconfigure existing space to 

recapture and backfill approximately 56,000 rsf of vacant space. The vacant space will be 

occupied by the Farm Service Agency (FSA), currently housed in leased space. Relocation of 

FSA to Bennett FB will allow the Government to release costly leased space reducing the 

Government’s rental payment to the private sector by approximately $1,300,000 annually. 

FSA’s archives are degrading, because the existing leased does not meet National Archive 

Records Administration (NARA) standards. The space at Bennett FB will meet NARA 

standards, and FSA will avoid the expense of building out such space in a leased location; it will 

also avoid future moves to other leased locations. Moreover, more efficient layouts at Bennett 

FB will allow FSA and the Bureau of Reclamation, a current tenant, to reduce their footprints by 

approximately 1,000 rsf and 11,000 rsf, respectively. The Bennett FB space will be a more 

efficient layout helping FSA and BOR reduce their footprint by approximately 1,000 rsf and 

11,000 rsf respectively in alignment with the goals set forth by Executive Order 13327 and the 

June 10, 2010 Presidential Memorandum on Disposing of Unneeded Federal Real Estate. 
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Mechanical equipment supporting the Bennett FB’s six elevators does not meet current codes, 

and the elevators’ control system are showing signs of deterioration, further necessitating 

system upgrades. Moreover, building restrooms do not comply with ABAAS—specifically, the 

minimum spacing required around doors and toilets. Finally, there are several areas in the 

building where galvanized pipe was used for the wet fire suppression system, which directly 

violates national sprinkler code and GSA standards due to sedimentation and reduced water 

flow. While undertaking construction in tenant spaces, GSA will replace the pipes with the 

appropriate black steel pipe.

The FY 2015 request is for Design ($620 thousand), Construction ($6,538 thousand), and M&I 

($600 thousand).

Virginia:

Reston, John Wesley Powell Federal Building .....................................................$11,010,000

GSA requests $11,010,000 for a repair and alteration project to replace the fire alarm system at 

the John Wesley Powell Building (Powell Building) located at 12201 Sunrise Highway, Reston, 

VA. The proposed project will replace the obsolete fire alarm system with a new emergency 

communication system that broadcasts information to building occupants in an emergency. The 

new system will be designed and installed according to GSA PBS-P100, Facilities Standards for 

the Public Buildings Service. 

Approximately 20-year old, the existing fire alarm system is at the end of its serviceable life. In 

addition, many of the system’s detection components are deteriorated and subject to 

malfunction upon activation. Lastly, the system is no longer manufactured or supported by the 

manufacturer, and replacement parts are difficult to find which has affected the reliability of the 

system. The existing system currently does not meet the requirements in the GSA PBS-P100 

nor the International Building Code which require an emergency communication system be 

installed to be able to broadcast information in an emergency to building occupants. It also is 

non-compliant with the regulations of the Americans with Disabilities Act (ADA), which stipulate 

installation of visible notification appliances for hearing impaired building users. 

The FY 2015 request is for Design ($1,060 thousand), Construction ($8,970 thousand), and M&I 

($980 thousand).

Roanoke, Richard H. Poff Federal Building...........................................................$15,128,000

GSA requests $15,128,000 for a repair and alterations project to replace two exterior brick 

façade walls and to undertake structural and life safety upgrades to the parking garage at the 

Richard H. Poff Federal Building (Poff FB), located at 210 Franklin Road SW, Roanoke, VA. 

Brick veneer on the west elevation of the building was removed in November 2012, after a large 

bulge and crack was detected in this facade wall. Currently, the underlying concrete structure is

exposed.
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After the facade was removed, GSA conducted a follow-up study that determined that the cause 

of the failure was poor installation and inadequate design. The study concluded that brick 

veneer on the east elevation suffers from the same complications, and should be removed and 

replaced before it is compromised. 

Parallel study of the parking garage concluded that water infiltration and associated corrosion 

had caused serious deterioration of steel reinforcement structure in portions of the Poff FB’s 

garage. In 2013, GSA closed a portion of the garage walkway it had deemed hazardous for foot 

traffic. The structure poses life-safety risks if it continues to deteriorate. As the facade walls 

and parking garage are structurally integrated, it is necessary to undertake both repairs 

simultaneously. 

The FY 2015 request is for Design ($1,076 thousand), Construction ($12,762 thousand), and 

M&I ($1,290 thousand).

Various Locations:

Fire and Life Safety Repairs-Region Four...............................................................$5,831,000

GSA requests $5,831,000 to undertake critical fire protection and life safety repairs in four 

separate buildings in Region 4: the G. Ross Anderson Jr. Federal Building and Courthouse 

(Anderson FBCT) located at 315 S. McDuffie Street, Anderson, SC; U.S. Customhouse 

(Customhouse) located at 200 E. Bay Street, Charleston, SC; J. Roy Rowland Federal Building 

and Courthouse (Rowland FBCT) located at 100 N. Franklin Street, Dublin, GA; and the Federal 

Building (Owensboro FB) located at 423 Frederica Street, Owensboro, KY. The projects within 

this request include the installation of a new automatic fire sprinkler system, a new underground 

water supply line for the fire sprinkler system, and a new fire pump necessary to supplement the 

water flow and pressure for the fire sprinkler system in each of the four buildings. Also intended 

is replacement of obsolete fire alarm systems in the Anderson FBCT and the Owensboro FB 

with new emergency communication systems that broadcast information in an emergency to 

building occupants are also included in this project; the new system will be designed and 

installed to meet the requirements in GSA PBS-P100, Facilities Standards for the Public 

Buildings Service.

The FY 2015 request is for Design ($793 thousand), Construction ($4,406 thousand), and M&I 

($632 thousand).

Project Descriptions-Special Emphasis Programs

Energy & Water Retrofit and Conservation Measures Program ..........................$40,000,000

GSA requests $40,000,000 for the implementation of energy and water retrofit and conservation 

measures in Government-owned buildings during fiscal year 2015.

The Energy and Water Conservation Measures Program is designed to reduce on-site energy 

consumption through building alteration projects or retrofits of existing buildings systems. 
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These projects are an important part of GSA’s approach to reducing energy consumption in the 

existing inventory to reach mandated percentage reduction goals through 2015. 

Projects in Federal buildings throughout the country are currently being identified through 

surveys and studies. The projects to be funded will have positive savings-to-investment ratios, 

will provide reasonable payback periods that reflect GSA's priority of being a green proving 

ground of next generation technologies, and may generate rebates and saving from utility 

companies and incentives from grid operators. Projects will vary in size, by location, and by 

delivery method. 

Projects will vary in size by location and by delivery method. Typical projects include the 

following:

Upgrading heating, ventilating, and air-conditioning (HVAC) systems with new, high 

efficiency systems including the installation of energy management control systems.

Installing building automation control systems, such as night setback thermostats and 

time clocks, to control HVAC systems.

Installing new or modifying existing temperature control systems.

Installing and caulking storm windows and doors to prevent the passage of air and 

moisture into the building envelope.

Providing advanced metering projects which enable building managers to better monitor 

and optimize energy performance.

The Energy Policy Act of 2005 (Public Law 109-58) required a 2 percent energy usage 

reduction as measured in BTU/GSF per year from 2006 through 2015 over a 2003 baseline. 

Guidance issued by the Department of Energy pursuant to this requirement states that savings 

anticipated from advanced metering can range from 2 to 45 percent annually when used in 

combination with continuous commissioning efforts. Executive Order 13423, Strengthening 

Federal Environmental, Energy, and Transportation Management concerning energy 

consumption reduction, was incorporated into law as the Energy Independence and Security Act 

of 2007 (EISA). Both increased the energy reduction mandates to 3 percent per year, and the 

Executive Order also established a water reduction mandate of 2 percent per year based on a 

2007 baseline as measured in gallons/gsf.

By the year 2015, all Federal agencies are directed to reduce overall energy use in buildings 

they operate by 30 percent from 2003 levels and reduce overall water use by 16 percent from 

2007 levels. 

Approval of this FY 2015 request will enable GSA to continue to provide leadership in 

energy/water conservation and efficiency to both the public and private sectors.
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Fire Protection and Life Safety Projects................................................................$40,000,000

GSA requests $40,000,000 for alterations to upgrade, replace, and improve fire protection 

systems and life safety features in Government-owned buildings during Fiscal Year 2015.

Typical projects include the following:

Replacing antiquated fire alarm and detection systems that are in need of repair or for 

which parts are no longer available.

Installing emergency voice communication systems to facilitate occupant notification 

and/or evacuation in Federal buildings during an emergency.

Installing and/or expanding fire sprinkler systems to provide a reasonable degree of 

protection for life and property from fire in Federal buildings.

Constructing additional exit stairs or enclosing existing exit stairs to ensure safe and 

timely evacuation of building occupants in the event of an emergency.

GSA periodically assesses all facilities using technical professionals to identify hazards and 

initiate correction or risk-reduction protection strategies to assure that no aspect of our buildings’ 

design or operation presents an unreasonable risk to GSA personnel, occupant agencies, or the 

general public. Completion of these proposed projects will improve the overall level of safety 

from fire and similar risks in GSA-controlled Federal buildings nationwide. 

Consolidation Activities Projects ........................................................................ $100,000,000

GSA requests $100,000,000 for the reconfiguration and renovation of space within Governmentowned buildings during fiscal year 2015 to support GSA’s ongoing consolidation efforts to 

improve space utilization, optimize inventory, decrease reliance on leased space, and reduce 

the Government’s environmental footprint. 

As part of its ongoing effort to improve space utilization, optimize inventory, decrease reliance 

on leased space, and reduce the Government’s environmental footprint, GSA is identifying 

consolidation opportunities within its inventory of real property assets. These opportunities are 

presented through surveys and studies, partnering with client agencies, and through agency 

initiatives such as Client Portfolio Planning (CPP. Projects will vary in size by location and 

agency mission/operations, however, no single project will be more than $10M in costs or 

exceed a 5 year Estimated Economic Payback. All projects will aim for a typical Office 

Utilization Rate of 130 usf/per person or less.

Typical projects include the following:

Reconfiguration and alteration of existing Federal space to accommodate incoming 

agency relocation/consolidation. (Note: May include reconfigurations of existing 

occupied Federal tenant space)

Incidental alterations and system upgrades such as fire sprinklers or HVAC, needed as 

part of relocation and consolidation
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Consistent with Administration initiatives such as the June 2010 Presidential Memorandum, 

Disposing of Unneeded Federal Real Estate and the Office of Management and Budget (OMB) 

Memorandum M-12-12, Promoting Efficient Spending to Support Agency Operations, as well as 

Congressional efforts to dispose of excess and underutilized properties, GSA is continually 

analyzing opportunities to improve space utilization and realize long-term cost savings for the 

Government. Funding for space consolidations is essential to ensuring that GSA can execute 

those opportunities.

Projects funded under this authorization will enable agencies to relocate from either leased or 

Federally-owned space to Federally-owned space that more efficiently meets mission needs. 

These relocations will result in improved space utilization, cost savings for the American 

taxpayers, and a reduced environmental impact. 

Judiciary Court Security Program .........................................................................$20,000,000 

GSA requests $20,000,000 for alterations to improve physical security in Government-owned 

buildings occupied by the Judiciary and U.S. Marshals Service (USMS) during Fiscal Year 2015 

in lieu of future construction of new facilities.

The Judiciary Capital Security (JCS) Program is dedicated to improving physical security in 

buildings occupied by the Judiciary and the USMS in lieu of construction of brand new facilities, 

thereby providing cost savings and expedited delivery. These projects will vary in size, location, 

delivery method, and improve the separation of circulation for the public, judges, and prisoners.

Funding provided for these projects would address elements such as additional doors, new 

physical or virtual barriers, reconfiguring or additional corridors, elevators, sallyports, and 

constructing physical or visual barriers.

The JCS is a vehicle for addressing security deficiencies in a timely and less costly manner 

when constructing a new courthouse is unlikely in the foreseeable future. 

Basic Repairs and Alterations Programs............................................................ $390,266,000

GSA requests $390,266,000 for all non-recurring repairs and alterations projects that are under 

the prospectus threshold (currently $2,850 thousand). Projects included in this category are 

short-term in nature, and funds can normally be obligated within a one-year period. This 

category also includes projects that are recurring in nature, such as cyclic painting and the 

minor repair of defective building systems (e.g. mechanical, plumbing, electrical, and elevator 

system components). After initial build-out, any post-Government occupancy alterations in 

leased space require a prospectus when the estimated cost of the project exceeds the 

prospectus threshold of $1,425 thousand for alterations in leased space.

The basic (non-line item) repairs and alterations program is the source of funds to ensure the 

operational continuity in over 1,500 Government-owned buildings. These buildings provide 

approximately 182 million rentable square feet of space to support tenant agency mission 

requirements. GSA buildings are an average of 47 years old and require constant attention and 

significant funding to maintain and operate. Without necessary reinvestment in a building, its 

condition will deteriorate and service delivery to customer Federal agencies will degrade. In 

addition, taxpayer investments in these properties will not be adequately protected, resulting in 
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more costly renovations in the future. The amount provided for the basic program may also be 

used to pay claims against the Government arising from any projects under the heading 

“Repairs and Alterations.” 

This request ($390,266,000) is for Design, Construction, and Management and Inspection. 
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Leasing

(Dollars in Thousands)

FY 2013

Actual

FY 2014

Enacted

FY 2015 

Request

$ 5,210,198 $5,387,109 $5,671,348

Note: Figures do not include indefinite authority for leased space.

Program Description – Leasing

This activity provides for the leasing of privately-owned buildings. Including space occupied by 

Federal agencies in U.S. Postal Service facilities, GSA provided 195 million square feet of rental 

space in FY 2013. GSA expects to provide 195 million square feet of rental space in FY 2014 

and 194 million square feet in FY 2015. 

.

The FY 2015 Rental of Space request consists of the following: 

$ 5,581,143 thousand for annual rent for leases already in the inventory; 

$30,635 thousand for rent increases, usually associated with replacement leases;

$149,933 thousand for tax and one-time payments, such as claims and buyouts; 

$(107,892) thousand for cancellations, the amount of space leaving the inventory; and

$17,529 thousand for new space, the amount of space entering the inventory for temporary 

leases in support of major repair and alteration projects and relocations due to forced moves 

or health and safety conditions.

Leasing Inventory

Note: Figures include indefinite authority and unbilled space.

FY 2015 estimated Rentable Square Feet (RSF) in thousands: 193,526

FY 2014 estimated RSF in thousands: 194,698

Projected annual decrease in RSF from FY 2014 to FY 2015: 0.6 percent

 2,668 thousand RSF New Space

 (3,834) thousand RSF Cancellations

 (1,166) thousand RSF net decrease
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Rental of Space, Explanation of Changes

(Dollars in Thousands)

Note: The FY 2015 request excludes new space acquired through Indefinite Authority (IA) in 

FY 2014 and FY 2015. 

Rental of Space, Delegation Obligations 

(Dollars in Thousands)

Obligations reported here reflect activities of the Administrative Contracting Officer (ACO) 

Delegation Program. Currently, only the Department of Commerce has this authority, and it is 

not anticipated that any additional lease administration delegations will be granted. Delegated 

agencies bear the primary responsibility for making rental payments to lessors in accordance 

with the provisions of the delegation agreements. ACO delegated leases expiring in FY 2014 

will not be renewed for delegation.

New 

Obligational 

Authority 

(NOA)

Fiscal Year 2014 Enacted $ 5,387,109

 Projected increase due to IA new lease space and other FY 2014 program changes 157,547

 Annualization of remaining FY 2014 Program Changes 36,487

Fiscal Year 2015 Base $ 5,581,143

 Rental Rate Increases 30,635

 Lump Sum Payments for real estate taxes and lease buyouts 149,933

 Lease Cancellations (107,892)

 New Lease Space 17,529

Fiscal Year 2015 Request $ 5,671,348

FY 2013 

Actual

FY 2014 

Currrent

FY 2015 

Request

 Department of Commerce......................$ 34,952 $ 16,917 $ 8,632
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Building Operations

Program Description – Building Operations

Building Services - This activity provides services for Government-owned and leased facilities, 

including cleaning, utilities and fuel, maintenance, security, and miscellaneous services (such as 

moving, evaluation of new materials and equipment, and field supervision). Salaries and 

Expenses - This activity provides general management and administration of all real property 

related programs including salaries and benefits paid from the FBF, administrative costs funded 

directly by the FBF, and contributions to the GSA Working Capital Fund.

Building Operations, Explanation of Changes

(Dollars in Thousands)

FY13 

Actual 

FY14 

Enacted

FY2015 

Request 

BASE BUILDING 973,290 1,054,356 1,029,324

Utilities 272,926 352,944 320,187

Maintenance 321,716 302,703 336,439

Cleaning 304,503 318,904 299,070

Security 74,145 79,805 73,628

OTHER / MISC BUILDING 174,374 104,513 93,403

Fire & Life Safety 8,773 7,576 7,569

Space Alterations / Changes 4,733 3,816 4,341

Misc Bldg Support 118,289 71,021 55,206

Buidling Moves 17,849 4,571 8,055

Recycling 3,898 2,239 2,373

Metering 1,505 1,654 2,223

Studies 19,327 13,636 13,636

TOTAL BUILDING SERVICES 1,147,664 1,158,869 1,122,727

PBS ADMINISTRATIVE 1,138,710 1,024,277 1,080,038

PBS IT Services 120,714 59,702 47,290

Personnel Compensation and Benefits 690,060 646,382 631,568

GSA Working Capital Fund 154,795 159,155 261,737

GSA IT Services 76,242 72,209 68,276

Management Support 96,899 86,829 71,167

OTHER / MISC PBS ADMINISTRATIVE 27,936 38,286 41,367

Transportation 26 169 198

Telephones 7,668 7,790 8,777

Printing 226 500 530

Training 3,245 5,286 7,051

Supplies 1,111 3,464 3,348

Equipment 8,228 7,268 11,108

Travel 7,432 13,809 10,355

TOTAL SALARIES AND EXPENSES 1,166,646 1,062,563 1,121,405

TOTAL BUILDING OPERATIONS 2,314,310 2,221,432 2,244,132
 U.S. General Services Administration

 Federal Buildings Fund

FBF-49

Justification of Building Operations Program

(Dollars in Thousands)

In addition to enacted FY 2014 funding, unobligated balances from FY 2013 will be used to fund

PBS payments to the GSA Working Capital Fund and GSA IT Services. The PBS portion of 

these bills are projected to be $330,013 thousand in FY 2014 and PBS anticipates using 

$98,649 thousand of the $307,200 thousand in unobligated balances for that purpose. The 

remaining unobligated balances will be required to implement acquisition and accounting policy 

changes that will require the FBF to incur obligations in excess of budgeted levels for cleaning, 

maintenance, and other recurring services.

Building Services

Cleaning: The cleaning budget consists of the interior cleaning, exterior cleaning, trash 

removal, landscaping, and snow removal operations of the buildings within GSA’s control. 

Targeting cleaning contracts whose costs exceed industry benchmarks and consolidating 

contracts will help offset increases due to inflation and inventory changes. These strategies will 

improve efficiency and reduce costs without impacting the level of services to agency 

customers. The FY 2015 request includes new buildings or buildings with a completed 

renovation that will come into PBS’s inventory between FY 2013 and FY 2015.

Utilities: The utility budget consists of the cost of energy needed to heat, cool, and power the 

operations of buildings as well as the cost of water and sewerage. The annual costs of Energy 

Saving Performance Contracts (ESPC) and Utility Savings Performance Contracts (USPC) are 

also paid out of the utilities budget, but most ESPC and UESC costs are offset by reductions to 

utility bills paid by PBS. The FY 2015 request includes buildings that will come into PBS’s 

inventory between FY 2013 and FY 2015.

Maintenance: The mechanical budget consists of electrical, plumbing, HVAC, and 

elevator/escalator operations, minor repairs (under $10k), and labor in support of the operations 

of the buildings within GSA’s control. Targeting operations and maintenance contracts whose

costs exceed industry benchmarks and consolidating contracts will slow the growth of 

maintenance costs. These strategies will improve efficiency and reduce costs without impacting 

the level of service to agency customers. The FY 2015 request includes buildings that will come 

into PBS’s inventory between FY 2013 and FY 2015.
U.S. General Services Administration

Federal Buildings Fund

FBF-50

Security: The security budget funds work performed by the Federal Protective Service for 

GSA, including building security and clearances. PBS will work with the GSA Office of Mission 

Assurance to implement initiatives that will result in an 8 percent reduction from the FY 2014 

budget level. PBS will reduce costs via efficiencies in the contractor clearance process,

reductions in building specific and basic security charges resulting from greater insight into line 

item billing, and reduction in charges associated with vacant space.

Fire Protection and Life Safety: The fire protection and life safety budget funds identified 

hazards that present a fire risk to GSA personnel, occupant agencies, or the general public that 

need to be addressed in order to improve the overall level of fire protection and life safety in 

the GSA-controlled buildings nationwide.

Space Alterations/Changes: This category funds space requirements development, 

expansion space, and alterations work in Federal space. 

Miscellaneous Building Support: This activity funds various building support functions not 

chargeable elsewhere, including escort services, key making, fitness centers, signage, renting 

operating equipment and tools, design, site acquisition, management and inspection, and 

cafeteria equipment.

Building Moves: This category funds costs associated with moving an agency into or out of 

space, or moving GSA assigned space.

Recycling: This activity includes costs for supporting and maintaining the recycling program, 

including labor, services, and supplies (i.e., containers, equipment, advertising, brochures).

Metering: This category funds costs associated with GSA’s building automation systems, 

advanced controls, and smart / advanced metering programs. Reprogramming and diagnostic 

work, as well as energy audits and studies and lighting work are also included.

Studies: This category includes various building studies, such as environmental studies and 

assessments, project development studies, building engineering reports, and planning studies. 

Energy audits are not included in this category. 
 U.S. General Services Administration

 Federal Buildings Fund

FBF-51

Salaries and Expenses 

PBS IT Services: This category provides funding for PBS-specific IT investments, including 

operation, maintenance, and enhancements of national applications. The Office of the CIO has 

been dedicated to consolidating IT functions and reducing spending. For example, PBS will 

consolidate 10 regional Computerized Management and Maintenance Systems into one 

national system. PBS will reduce or eliminate the use of some PBS specific systems, including 

identity access management, Comprizon, and eLease, where those systems duplicate or 

overlap the functions of GSA IT systems. 

Personnel Compensation and Benefits: The Building Operations portion of PC&B funds 

5,125 FTE with the remaining FTE funded from reimbursable authority. This is a reduction of 

334 FTE from the FY 2014 request and will reduce costs by 2 percent. PBS will achieve these 

reductions through attrition and hiring freezes in non-frontline positions including program 

managers, analysts, and subject matter experts. Some of the savings from the reduced FTE are 

offset by the 1 percent pay increase assumed for FY 2015, changes to agency contributions for 

employee retirement, and within-grade pay increases.

GSA Working Capital Fund: This category provides funding for GSA’s non-IT overhead costs, 

such as legal and human resources. In this request, PBS has transferred 746 FTE associated 

with Budget, Finance, Human Resources and IT services to the Working Capital Fund, 

accounting for the significant increase in the PBS contribution from FY 2013 to FY 2014. 

GSA IT Services: The GSA IT Services provides funding for the MOU between GSA and PBS, 

which provides application, hardware, and support that benefit GSA as a whole or is maintained 

centrally.

Management Support: Management Support refers to PBS functions that are contracted out 

rather than maintained in-house, including administrative functions as well as subject matter 

expertise in other core areas of PBS’s business, such as leasing and building support. PBS will 

reduce spending on management support contracts by 18 percent from FY 2014 enacted to FY 

2015 request.

Other/Miscellaneous PBS Administrative: This category provides funding for PBS’s 

administrative costs, such as transportation, telephones, printing, training, supplies, equipment, 

and travel. 
U.S. General Services Administration

Federal Buildings Fund

FBF-52

Reimbursable Program

(Dollars in Thousands)

Program Description – Reimbursable Program

When requested by other Federal agencies, PBS provides building services, such as tenant 

alterations, cleaning and other operations, and protection services which are in excess of those 

services provided under the commercial rental charges.

FTE

New Obligational 

Authority (NOA)

FY 2014 Plan 350 $2,399,378 

 

 

 Workload Increases 0

FY 2015 Request 350 $2,399,378 
 U.S. General Services Administration

 Federal Buildings Fund

FBF-53

Evidence and Innovation Agenda

In support of the President’s Evidence and Innovation Agenda, the FY 2015 budget request 

includes strategies and action plans that promote a smarter, more innovative, and more 

accountable Government. 

Harnessing data to improve agency results

PBS will continue to measure, track performance and identify opportunities for energy and water 

savings, and waste reduction opportunities and implement no and low cost measures. 

PBS will identify deployment opportunities for “proven” Green Proving Ground technologies. 

Planned actions include:

● Incorporate practices that engage tenants to participate in GSA’s waste diversion and 

recycling programs and train GSA property managers to use waste diversion data to reduce 

use and operating costs, 

● Use advanced metering technologies to create data baselines, and

● Perform energy and water audits across the PBS inventory.

PBS will continue to reduce greenhouse gas emissions associated with building operations by 

increasing energy efficiency and renewable energy (purchases and on-site generation) along 

with reducing travel and fleet. Planned actions include:

● Use advanced metering technologies to monitor energy usage, and

● Perform energy audit across the PBS inventory.

High-quality, low-cost evaluations and rapid, iterative experimentation

In collaboration with FAS, PBS will effectively leverage strategic sourcing initiatives and 

influence market pricing through bulk purchasing of “proven” Green Proving Ground 

technologies. Planned actions include:

● Identify, select and evaluate innovative technologies with greatest potential,

● Identify opportunities to deploy “proven” technologies in GSA buildings,

● Expand enterprise-wide long-term asset management strategy to include coordinated bulk,

purchases of proven technologies/systems, and
U.S. General Services Administration

Federal Buildings Fund

FBF-54

● Explore increased access to GSA schedules by Government contractors; state and 

municipal Governments; and NGOs.

Strengthening agency capacity to use evidence

PBS will establish and maintain multi-functional governance boards and Integrated Project 

Teams (IPTs) that set and drive the strategic direction for delivering PBS programs in the most 

efficient manner possible. Planned actions include:

● Establish IPTs for custodial, operations and maintenance, elevator maintenance, and small 

projects to identify the benchmarks of success,

● Identify, select, and implement strategic sourcing solutions for facilities programs, building 

operations services, and delivery of small projects, and

● Utilize a corporate governance structure to define expectations, verify performance, and 

ensure consistency throughout PBS.

PBS will continue to improve the accuracy of data reported into the Federal Real Property 

Profile. Planned actions include:

● Provide better data for business decisions and performance monitoring,

● Capture and document best practices and lessons learned in new construction and major 

alteration projects with Post Occupancy Evaluations, and

● Continue to use and improve large and small project tracking and reporting tools.
 U.S. General Services Administration

 Federal Buildings Fund

FBF-55

Schedule of Indefinite Authorities

Program Source Explanation 

Recycling and 

Energy Rebates 

40 USC 592 The Administrator may obligate amounts received and 

deposited in the Federal Buildings Fund for energy 

management improvement and recycling programs.

Historic Properties 16 USC 

470h-3(b)

The proceeds of any outlease for a historic property 

under Section 111 of the National Historic Preservation 

Act may, notwithstanding any other provision of law, be 

retained by the agency entering into such lease and 

used to defray costs incurred by the agency with respect 

to such property or other properties under the control of 

the agency which are on the National Register of Historic 

Places.

Pennsylvania 

Avenue Activities 

40 USC 

6701(b)(1)

The Administrator may use amounts transferred from the 

Pennsylvania Avenue Development Corporation (PADC) 

or income earned on PADC property for activities 

associated with carrying out the responsibilities of the 

PADC transferred to the Administrator. Any income 

earned after October 1, 1998, shall be deposited to the 

Federal Buildings Fund to be available for the purposes 

authorized under this subchapter, notwithstanding 40 

USC 592(c)(1). 

International Trade 

Center 

40 USC 

6701(a)(1)

The Administrator may make and perform transactions 

as necessary to carry out the trade center plan at the 

Federal Triangle Project. See also 40 USC 6701(b)(1), 

noted above.

Cooperative Use Act 

and National 

Antenna Program 

40 USC 

581(h)(3)

GSA may deposit into the FBF amounts received under 

Coop Use Act leases or rentals, and amounts deposited 

shall be credited to the appropriation from the Fund 

applicable to the operation of the building.

Telecommuting 40 USC 

587(b)(4)

The Administrator may deposit into the FBF user fees 

related to telecommuting centers, and use the fees to 

pay costs incurred in establishing and operating 

telecommuting centers. GSA may accept and retain 

income received from Federal agencies and non-Federal 

sources to defray costs directly associated with the 

functions of telecommuting centers.
U.S. General Services Administration

Federal Buildings Fund

FBF-56

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U.S. General Services Administration

GOVERNMENT-WIDE POLICY

Fiscal Year 2015 Budget Request

CONTENTS

Appropriations Language.................................................................................................... 2

Analysis of Language Provisions and Changes ................................................................. 2

Amounts Available for Obligation........................................................................................ 3

Explanation of Changes, Appropriated Dollars and FTE.................................................... 4

Explanation of Changes by Office, Appropriated Dollars and FTE..................................... 5

Summary of the Request .................................................................................................... 6

Obligations by Object Classification.................................................................................... 9

Office of Government-wide Policy..................................................................................... 10
U.S. General Services Administration

Government-wide Policy

GP-2

Appropriations Language

For expenses authorized by law, not otherwise provided for, for Governmentwide policy and evaluation activities associated with the management of real and 

personal property assets and certain administrative services; Government-wide 

policy support responsibilities relating to acquisition, [telecommunications]travel, 

motor vehicles, green buildings, information technology management, and 

related technology activities; the collection and evaluation of data from 

departments and agencies relating to activities described herein; and 

services as authorized by 5 U.S.C. 3109; [$58,000,000]$59,206,000.

Analysis of Language Provisions and Changes 

The Office of Government-wide Policy (OGP) is responsible for developing evidence-based 

policies that are designed to lead to more effective and efficient Federal mission delivery 

based on data from other agencies. The proposed appropriations language has been 

inserted to clarify and support the General Services Administration’s (GSA) mission and 

OGP’s ability to collect data and conduct analysis to inform policy development. The 

language establishes the expectation that departments and agencies will provide data to 

GSA. 
U.S. General Services Administration

Government-wide Policy

GP- 3

Amounts Available for Obligation

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Unobligated balance, start of year........................ $ 4,336 $ 9,880 $ 9,880

Discretionary authority:

 Annual appropriation.................................... 61,115 58,000 59,206

Reimbursable authority:

New authority........................................... 1,481 17,700 8,700

Transfers in for Inter-Agency Councils............ 16,539 17,000 17,000

Change in uncollected payments................... 287 0 0

Subtotal, reimbursable authority............................. 18,307 34,700 25,700

Recovery of prior-year obligations....................... 0 0 0

Unobligated balance, expiring............................ -1,269 0 0

Unobligated balance, reimbursable..................... -59 0 0

Unobligated balance, rescinded............................ -122 0 0

Unobligated balance, sequestered....................... -3,074 0 0

Unobligated balance, end of year................. -9,880 -9,880 -9,880

Total, obligations............................................... 69,354 92,700 84,906

Obligations, appropriated (annual)...........................$ 56,650 $ 58,000 $ 59,206

Obligations, appropriated (no year).......................... 0 0 0

Obligations, reimbursable....................................... 12,704 34,700 25,700

 Net Outlays 51,903 61,323 59,592
U.S. General Services Administration

Government-wide Policy

GP-4

Program Description

This appropriation provides for the activities of the Office of Government-wide Policy (OGP). 

OGP works cooperatively with other agencies to provide the leadership needed to develop and 

evaluate policies associated with high-performing green buildings and real property; acquisition 

policy and training; personal property; travel, transportation management, motor vehicles and 

aircraft; committee management; information sharing and cybersecurity; and transparency of 

regulatory information. In its work, OGP identifies policies to drive savings, efficiency, and 

effectiveness. 

Explanation of Changes, Appropriated Dollars and FTE

(Dollars in Thousands)

FTE FY 2013 

Actual FTE FY 2014 Enacted FTE FY 2015 Request

149.0 57,918 135.0 58,000 135.0 59,206

Maintaining Current Levels:

 FY 2015 Pay Increase (1%), Effective January 2015 $ 201

Program Increases:

Centralized communications platform, including the consolidation of IT assets

(.gov domains) within OGP 1,964

 Subtotal, Program Increases............................................................... 1,964

Program Decreases:

Technical Support Contracts Savings (including CFDA) -959

 Subtotal, Program Decreases.............................................................. -959

Total Adjustments............................................................................ 0.0 $ 1,206
U.S. General Services Administration

Government-wide Policy

GP- 5

Explanation of Changes by Office, Appropriated Dollars and FTE 

(Dollars in Thousands) 

FTE obligations FTE authority FTE authority

1. Administration

 Annual appropriation 12.0 $14,889 20.0 $15,222 20.0 $17,608

 Subtotal, Administration 12.0 $14,889 20.0 $15,222 20.0 $17,608

2. Asset and Transportation Management

 Annual appropriation 54.0 $11,572 50.0 $12,986 50.0 $12,025

 Reimbursable authority 0.0 $0 0.0 $0 0.0 $0

 Subtotal, Asset and Transportation 54.0 $11,572 50.0 $12,986 50.0 $12,025

3. Information, Integrity, and Access Management

 Annual appropriation 43.0 $18,671 24.0 $17,912 24.0 $17,513

 Reimbursable authority 0.0 $100 0.0 $2,700 0.0 $2,700

 Subtotal, Information, Integrity, and Access 43.0 $18,771 24.0 $20,612 24.0 $20,213

4. Federal High Performance Green Buildings

 Annual appropriation 10.0 $3,838 9.0 $2,830 9.0 $2,864

 Subtotal, High Performance Green Buildings 10.0 $3,838 9.0 $2,830 9.0 $2,864

5. Acquisition Policy

 Annual appropriation 30.0 $7,680 32.0 $9,050 32.0 $9,196

 Reimbursable authority 9.0 $1,615 12.0 $6,000 12.0 $6,000

 Subtotal, Acquisition Policy 39.0 $9,295 44.0 $15,050 44.0 $15,196

6. Executive Councils

 Reimbursable authority 10.0 $10,989 15.0 $17,000 20.0 $17,000

 Subtotal, Executive Councils 10.0 $10,989 15.0 $17,000 20.0 $17,000

Total, Annual appropriated 149.0 $56,650 135.0 $58,000 135.0 $59,206

Total, Reimbursable 19.0 $12,704 27.0 $25,700 32.0 $25,700

Total, Budget Authority 168.0 $69,354 162.0 $83,700 167.0 $84,906

FY 2013 FY 2014 FY 2015

Actuals Enacted Request
U.S. General Services Administration

Government-wide Policy

GP-6

Summary of the Request

The FY 2015 proposed budget provides a total of $59,206 thousand and 135 FTE for the Office 

of Government-wide Policy (OGP). This budget reflects a net increase of $1,206 thousand and 

no change in FTE from FY 2014 enacted levels. With the requested funding, OGP will provide 

government-wide policy management base operations such as policy collaboration, data 

collection, and analysis.

The request reflects $201 thousand for a 1% pay increase. It also reflects consolidation of staff 

and program functions identified through GSA’s continuous Top to Bottom Review, which in FY 

2014, includes the transfer of 4 FTE to the Office of Citizen Services and Information 

Technologies (OCSIT), 7 FTE to the Office of the Chief Information Officer (CIO), 9 FTE to the 

Federal Acquisition Service (FAS), and 4 FTE to the Office of Administrative Services (OAS).

The request enables OGP to support both governmentwide and GSA priorities. In terms of 

governmentwide priorities, OGP is enhancing its data, analysis, and policy efforts to drive 

progress across government in freezing the Federal footprint; right-sizing the Federal fleet; 

developing the civilian acquisition workforce and meeting key acquisition performance targets, 

such as small business set asides, strategic sourcing, and competition; improving the 

sustainability of Federal buildings; and enhancing the cybersecurity posture of the government. 

This work aligns closely to the GSA priorities of delivering better value and savings; serving our 

partners; and making a more sustainable government. OGP’s role is to collect data, conduct

analysis, and establish policies that will enable agencies to make informed decisions for 

reducing costs and more effectively manage mission-enabling functions and activities such as

travel, fleet, acquisition, and real property, among others. 
U.S. General Services Administration

Government-wide Policy

GP- 7

Program Financing 

OGP is financed from annual appropriations to pay for the salaries and expenses of OGP staff 

and government-wide policy programs. Additionally, OGP receives reimbursable authority 

allowing Federal agencies to pay for the cost of government-wide services. Reimbursable costs 

include the Federal Acquisition Institute’s (FAI) governance boards, policy coordination efforts, 

multi-agency training development and maintenance, and the ability to acquire training services 

from pre-qualified vendors. It also covers OGP’s management of the Federal Management 

Councils in coordination with OMB, which identify and pursue performance improvement 

initiatives across agencies.

Reimbursable Programs: In FY 2015, OGP anticipates providing reimbursable services to 

other Federal agencies and councils in the amount of $25,700 thousand and 32 FTE, which is a 

decrease of $9,000 thousand from the funding requested in FY 2014 for FAI. The Executive 

Councils requested funding is unchanged from FY 2014 and includes an increase of 5 

reimbursable FTE to support council management.

The Federal Acquisition Institute (FAI) requests $6,000 thousand and 12 FTE to support 

implementation of the FAI Improvement Act (41 U.S.C. § 1201, PL 112-81). The FAI deploys a 

civilian agency training consortium board that reduces redundancies, leverages resources, and 

aligns training objectives across Federal agencies. Additionally, $2,700 thousand is required to 

support Federal Advisory Committee Act (FACA) Training and several OMB-driven, 

government-wide initiatives.

The Government-wide Executive Councils budget includes $17,000 thousand and 20 FTE to 

support the intergovernmental Federal Management Councils in the planning, development, and 

distribution of performance improvement results. Council funding supports peer meetings 

among leaders to facilitate experience exchange and benchmarking. It also supports coinvestment in projects that benefit one or more functional areas, such as shared services and 

strategic sourcing.
U.S. General Services Administration

Government-wide Policy

GP-8

FY 2015 Budget Impacts

The FY 2015 proposed budget requests a total of $59,206 thousand and 135 FTE for the Office 

of Government-wide Policy (OGP). At this level, OGP will provide government-wide policy 

management of base operations.

Program Reductions

OGP realizes efficiencies by:

Continuing practices to reduce travel expenditures from FY 2010 levels as directed in 

Executive Order 13589 and OMB Memorandum M-12-12 by extensively utilizing 

Information Technology (IT) tools, such as webinars teleconferencing, and videotaping 

of training as well as approving all travel at the Associate Administrator level. The FY 

2014 and 2015 requests represent an almost 60 percent reduction over FY 2010 

actuals. 

Canceling recurring conferences, which eliminates staff time dedicated to management 

of the conferences and associated expenditures. 

Consolidating staff and functions. As part of GSA’s continuous Top to Bottom Review, 

OGP assessed its programs and staff functions to identify greater efficiencies. As a 

result, effective in FY 2014, OGP is transferring staff and associated functions as 

follows: 4 FTE to the Office of Citizen Services and Information Technologies (OCSIT), 

7 FTE to the Office of the Chief Information Officer (CIO), 9 FTE to the Federal

Acquisition Service (FAS), and 4 FTE to the Office of Administrative Services (OAS). By 

doing so, OGP is able to more clearly focus on its core mission, while providing 

additional staff support to the gaining offices to enhance their respective efforts. 

Consolidating or eliminating contractual support, including a $757 thousand reduction 

from transferring contracts for the Catalog for Domestic Assistance to FAS, which can 

better and more efficiently manage the work as part of its overall management of the 

Integrated Award Environment. 
U.S. General Services Administration

Government-wide Policy

GP- 9

Obligations by Object Classification

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

11.1 Full-time, permanent.................................. $ 18,112 $ 16,386 $ 16,753

11.3 Other than full-time permanent..................... 303 312 314

11.5 Other personnel compensation..................... 173 168 171

11.8 Special personnel services payments............ 42 19 0

12.1 Civilian personnel benefits........................... 4,794 4,397 4,494

21.0 Travel and transportation of persons.............. 65 138 138

22.0 Transportation of things.............................. 2 0 0

23.1 Rental payments to GSA............................. 1,287 0 0

23.3 Communications and utilities....................... 47 45 45

24.0 Printing and reproduction............................ 456 495 495

25.1 Advisory and assistance services................. 19,837 20,701 20,233

25.2 Other services from non-Federal sources....... 337 265 265

25.3 Other goods & services from Federal sources. 10,742 13,744 16,114

25.7 Operation and maintenance of equipment....... 23 0 0

26.0 Supplies and materials............................... 30 25 25

31.0 Equipment............................................... 4 159 159

42.0 Insurance claims and indemnities................. 394 1,146 0

99.0 Obligations, Appropriated (Annual)............ $ 56,650 $ 58,000 $ 59,206

Subtotal, PC&B............................... 23,424 21,282 21,732

Subtotal, Non-labor.......................... 33,225 36,718 37,474

99.2 Obligations, reimbursable.......................... 12,703 34,700 25,700

99.9 Total obligations........................................ $ 69,353 $ 92,700 $ 84,906
U.S. General Services Administration

Government-wide Policy

GP-10

Office of Government-wide Policy

The Office of Government-wide Policy (OGP) develops and analyzes administrative policies for 

the Federal government in multiple functional areas, including real and personal property; 

aircraft and motor vehicles; travel and transportation of goods and people; acquisition of goods 

and services; information sharing, integrity and access policy; and economically and 

environmentally high performance Federal buildings, among others. Through the development 

of evidence-based policies, OGP strives to improve the effectiveness (mission delivery) and 

efficiency (cost savings) of Federal government operations, while increasing government 

information sharing, accountability, and transparency. 

Through its evidence-based policies, OGP has helped Federal customers identify considerable 

savings opportunities, advance the efficiency and effectiveness of government operations, and 

increase the security of information sharing. Highlights include: 

$215 million in projected savings through FY 2015 by assisting in the implementation of 

the Vehicle Allocation Methodology – designed to optimize Federal motor vehicle fleet 

operations;

Established, in coordination with OMB and Federal agencies, the real property square 

footage baseline from which progress will be measured in meeting OMB’s “Freeze the 

Footprint” policy;

Advancing key acquisition public policy objectives, including small business set-asides, 

accountability through past performance reporting, and increasing competition in the 

awarding of government contracts. 

Ensuring efficient and cost effective deployment of civilian acquisition workforce training 

through management of the Federal Acquisition Institute;

Implementing the Federal Building Personnel Training Act by developing core 

competencies for Federal building management personnel–aimed to drive cost savings 

and reductions to the environmental impact of operating Federal buildings; 

Collaborating with OMB and Federal management councils to identify and pursue 

performance improvement initiatives across agencies; and 

Continued support in implementing the Administration’s National Strategy for Trusted 

Identities in Cyberspace (NSTIC) and the National Strategy for Information Sharing and 

Safeguarding to secure trusted online interactions for agencies and citizens;
U.S. General Services Administration

Government-wide Policy

GP- 11

OGP is made up of five policy offices, described below:

Asset and Transportation Management

The Office of Asset and Transportation Policy develops government-wide policies and guidance 

for agencies to implement economical and effective management processes for government 

assets. Policy program areas include aircraft, motor vehicles, personal property, real property, 

transportation, mail, passenger travel, relocation allowances and entitlements, and Federal

Advisory Committees. It also manages the Federal Real Property Database of all Federal

Government real property assets and supports the Federal Real Property Management Council 

in its efforts to promote effective government-wide asset management.

Information, Integrity, & Access

The Office of Information, Integrity, and Access has a portfolio of responsibility that includes 

identity, credentials, and access management; dot gov domain management; information assets 

management; and electronics and information technology accessibility. The Office develops 

and delivers policies and guidance that are fundamental underpinnings to ensuring information 

sharing capabilities, enabling a digital government, and advancing improvements in 

cybersecurity. 

OGP is the designated authority for: 

Homeland Security Priority Directive 12 (HSPD-12) – OGP develops program guidance 

for logical (systems) and physical (buildings) access for Federal agencies.

Federal Identity, Credentials and Access Management (FICAM) – the FICAM program 

forms the basis from which policies are advanced, tested, and implemented to improve 

the security posture of the Federal information systems against threats by increasing the 

use of strong multi-factor authentication technologies. 

National Strategy for Trusted Identities in Cyberspace (NSTIC) program – in 

coordination with the Department of Commerce National Institute for Standards and 

Technology, OGP facilitates secure government-to-citizen on-line information access 

and exchange.

Lead support for the Administration’s Cyber Cross-Agency Priority goal for strong 

authentication to ensure only authorized employees have access to Federal information 

systems by requiring a higher level of assurance through using multi-factor 

authentication, such as Personal Identity Verification (PIV) cards.
U.S. General Services Administration

Government-wide Policy

GP-12

Federal Public Key Infrastructure (PKI) program – OGP continually develops and works

to strengthen more secure technology and encryption authorities for Federal agencies. 

DOT GOV Domain program – as the policy authority and government-wide domain 

program manager, OGP ensures a highly secure Federal ecosystem environment for 

U.S. Government organizations. 

National Strategy for Information Sharing and Safeguarding – OGP serves as the goal 

lead for extending and implementing the FICAM Roadmap across all security domains 

as well as refining standards certification and conformance processes to enable 

standards-based acquisition among departments and agencies, standards bodies, and 

vendors to promote interoperable products and services.

In collaboration with the Access Board, OGP provides Section 508 technical assistance, 

tools, and workforce development support to Federal agencies. OGP is also responsible 

for leading the development and management of tools, such as the Section 508 portal 

and the BuyAccessible Wizard, for use by the acquisition, IT, and Section 508 

coordinator communities. 

Office of Federal High-Performance Green Buildings

The Office of Federal High-Performance Green Buildings works to reduce the economic and 

environmental footprint of Federal buildings through evidence-based guidance and best 

practices. The Office's staff of experts assists GSA and customer agencies in developing 

strategies and practices to:

Reduce energy and water use and their associated operating costs, including ongoing 

support to GSA’s Energy Savings Performance Contract (ESPC) commitment of $175 

million made in FY 2013;

Increase operational effectiveness by making work spaces healthier and more 

productive while simultaneously reducing environmental impacts; and

Transform the culture of the Federal government toward more sustainable building 

practices, including through enhanced training, operational standards, guidance, 

measurement, and reporting.
U.S. General Services Administration

Government-wide Policy

GP- 13

Office of Acquisition Policy 

The Office of Acquisition Policy is responsible for carrying out GSA’s acquisition policy role 

within the Federal Government. Along with the Department of Defense (DoD) and National 

Aeronautics and Space Administration (NASA), GSA is a member of the Federal Acquisition 

Regulatory Council. The Office’s Federal Acquisition Policy Division is one of the architects of 

the Federal Acquisition Regulation (FAR) – the acquisition rulebook governing more than $500 

billion in annual procurement spending – and is responsible for balancing a wide array of issues, 

including small business participation, competition, labor policy, cost control, risk management, 

integrity, and ethics. The Division coordinates with the Office of Federal Procurement Policy 

within the Office of Management and Budget (OMB) and other agencies, through its role as the 

Chair of the Civilian Acquisition Council, to implement laws, executive orders, agency 

regulations, and other initiatives to support the Federal Government’s acquisition system. 

The Federal Acquisition Institute (FAI) has been charged with fostering and promoting the 

development of a government-wide acquisition workforce. FAI facilitates and promotes career 

development and strategic human capital management. In coordination with the Office of 

Federal Procurement Policy, FAI implements strategies to meet the needs of the current and 

future civilian agencies’ acquisition workforce by ensuring the availability of exceptional training, 

providing compelling research, promoting professionalism, and improving acquisition workforce 

management.

The Regulatory Information Service Center (RISC) Division provides cost effective regulatory 

planning services for more than 60 Federal agencies and on behalf of OMB’s Office of 

Information and Regulatory Affairs (OIRA). The RISC/OIRA Consolidated Information System 

(ROCIS) supports public transparency of government-wide regulations and coordinates the 

regulatory activities of Federal agencies. ROCIS enables the public to access and participate 

effectively in the regulatory process. The Division also coordinates the Unified Agenda and the 

Regulatory Plans for all Federal agencies to identify regulatory priorities and provide detail 

about the most significant regulatory actions that agencies expect to take in the coming year.
U.S. General Services Administration

Government-wide Policy

GP-14

Office of Executive Councils

The Office of Executive Councils provides dedicated support to Federal interagency 

management councils, increasing their effectiveness in solving challenges across agencies, 

spurring innovation and improving policy outcomes. The office collaborates with the Office of 

Management and Budget (OMB) and Federal management councils to identify governmentwide performance improvement initiatives based on proven practices; leads working groups to 

advance these initiatives across agencies; establishes performance goals; and facilitates 

implementation of new processes and programs across government. The office provides 

analytical, management and administrative services to the following Federal management 

councils and advisory boards:

Chief Acquisition Officers Council (CAOC)

Chief Financial Officers Council (CFOC)

Chief Information Officers Council (CIOC)

Performance Improvement Council (PIC)

President’s Management Council (PMC)

President’s Management Advisory Board (PMAB)
U.S. General Services Administration

OPERATING EXPENSES

Fiscal Year 2015 Budget Request

CONTENTS

Appropriations Language.................................................................................................... 2

Program Description ........................................................................................................... 2

Amounts Available for Obligation........................................................................................ 3

Explanation of Changes, Appropriated Dollars and FTE.................................................... 4

Explanation of Changes by Program, Appropriated Dollars and FTE ................................ 5

Summary of the Request .................................................................................................... 5

Obligations by Object Classification.................................................................................... 7

Obligations by Program....................................................................................................... 8

Federal Acquisition Service, Personal Property Program................................................. 10

Public Buildings Service, Office of Real Property Utilization and Disposal ...................... 12

Office of Communications and Marketing ......................................................................... 14

Management and Administration ...................................................................................... 15

Civilian Board of Contract Appeals ................................................................................... 16
U.S. General Services Administration

Operating Expenses

OE-2

Appropriations Language 

For expenses authorized by law, not otherwise provided for, for Government-wide 

activities associated with utilization and donation of surplus personal property; 

disposal of real property; agency-wide policy direction, management, and 

communications; the Civilian Board of Contract Appeals; services as authorized by 

5 U.S.C. 3109; [$63,466,000, of which $28,000,000 is for Real and Personal 

Property Management and Disposal; $26,500,000 is for the Office of the 

Administrator]$61,049,000, of which not to exceed $7,500 is for official reception and 

representation expenses. [; and $8,966,000 is for the Civilian Board of Contract 

Appeals: Provided further, That not to exceed 5 percent of the appropriation made 

available under this heading for Office of the Administrator may be transferred to the 

appropriation for the Real and Personal Property Management and Disposal upon 

notification to the Committees on Appropriations of the House of Representatives 

and the Senate, but the appropriation for the Real and Personal Property 

Management and Disposal may not be increased by more than 5 percent by any 

such transfer.]

Program Description 

This appropriation supports a variety of operational activities which are not feasible or 

appropriate for a user fee arrangement. Major programs include the personal property 

utilization and donation activities of the Federal Acquisition Service; the real property utilization 

and disposal activities of the Public Buildings Service; the activities of the Civilian Board of 

Contract Appeals; and Management and Administration activities, including support of 

Government-wide emergency response and recovery activities; and top-level, agency-wide 

management communications activities.
U.S. General Services Administration

Operating Expenses

OE-3

Amounts Available for Obligation

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Unobligated balance, start of year........................... $ 772 $ 772 $ 0

Discretionary authority:

 Annual appropriation....................................... 69,500 63,466 61,049

Reimbursable authority:

New authority.............................................. 2,413 16,665 16,665

Change in uncollected payments..................... 2,123 0 0

Subtotal, reimbursable authority............................. 4,536 16,665 16,665

Reimbursable authority, expiring......................... -16 0 0

Appropriations, expiring............................... -6,031 -772 0

Appropriations, rescinded............................ -139 0 0

Appropriations, sequestered....................... -3,496 0 0

Unobligated balance, end of year................. -772 0 0

Total, obligations............................................... 64,354 80,131 77,714

Obligations, appropriated (annual)...........................$ 59,834 $ 63,466 $ 61,049

Obligations, reimbursable....................................... 4,520 16,665 16,665

Net Outlays 56,674 64,635 62,727
U.S. General Services Administration

Operating Expenses

OE-4

Explanation of Changes, Appropriated Dollars and FTE 

(Dollars in Thousands)

Note: FY 2014 funding reflects a transfer of $1,600 thousand and 28 FTE from the Public 

Buildings Service in support of the CxO Consolidations. 

FTE FY 2013 

Actual FTE FY 2014 Enacted FTE FY 2015 Request

302.0 65,865 345.0 63,466 341.0 61,049

FY 2014 Enacted 345.0 $ 63,466

Maintaining Current Levels:

 FY 2015 Pay Increase (1%), Effective January 2015 308

Program Increases:

Rental Payments 179

 Subtotal, Program Increases........................................................................179

Program Decreases:

Personnel Compensation and Benefits -4.0 -373

Travel and Transportation -83

Communications, Printing, and Reproduction -26

Printing -3

Contractual Services -2,301

Supplies, Materials, and Equipment -118

 Subtotal, Program Decreases........................................................................ -4.0 -2,904

Total Adjustments............................................................................ -4.0 -$ 2,417
U.S. General Services Administration

Operating Expenses

OE-5

Explanation of Changes by Program, Appropriated Dollars and FTE 

(Dollars in Thousands)

Summary of the Request 

The FY 2015 proposed budget provides a total of $61,049 thousand and 341 FTE for 

Operating Expenses (OE), a net decrease of -$2,417 thousand and decrease of 4 FTE from the 

FY 2014 enacted level, and a net decrease of -$4,816 thousand the FY 2013 enacted level, 

including sequestration. This aggressive reduction reflects GSA’s efforts to “do more with less” 

by improving budget execution within the five OE program areas, including absorbing additional 

staff functions from other offices in GSA in FY 2014.

With the requested funding, OE will fund the personal property utilization and donation activities 

of the Federal Acquisition Service; the real property utilization and disposal activities of the 

Public Buildings Service; the activities of the Civilian Board of Contract Appeals; Management 

and Administration activities; and top-level, agency-wide management communications 

activities. In accordance with Administration priorities, GSA will reduce OE -funded travel, 

communications, supplies, equipment, advisory services levels, and goods and services from 

Federal sources. The net reduction of -$2,417 thousand and a decrease of 4 FTE include:

$308 thousand increase for the FY 2015 pay raise. 

$179 thousand increase in program operations for the Real Property Disposal program to 

sustain the level of contract support needed for the increasing demand in disposal of real 

TOTAL

FTE Authority 

($000) FTE Authority ($000) FTE Authority ($000) FTE Authority ($000) FTE Authority ($000) FTE Authority ($000)

FY 2014 Enacted 76.0 $ 11,432 90.0 $ 16,568 37.0 $ 7,034 103.0 $ 19,466 39.0 $ 8,966 345.0 $ 63,466

Maintaining Current Levels:

 FY 2015 Pay Increase (1%), Effective January 2015 65 88 39 74 42 308

Program Increases:

Personnel Compensation and Benefits 0 12 41 53

Rent 179 179

Printing 2 2

 Subtotal, Program Increases: 0 14 0 0 220 234

Program Decreases:

Personnel Compensation and Benefits -2.0 -158 -87 -2.0 -181 -4.0 -426

Travel and Transportation -83 -83

Communications, Printing, and Reproduction -3 -11 -12 -26

Printing -1 -4 -5

Contractual Services -388 -1,164 -321 -236 -192 -2,301

Supplies, Materials, and Equipment -4 -27 -36 -7 -44 -118

 Subtotal, Program Decreases: -2.0 -637 -1,202 -444 -2.0 -440 -236 -4.0 -2,959

FY 2015 Request 74.0 $ 10,860 90.0 $ 15,468 37.0 $ 6,629 101.0 $ 19,100 39.0 $ 8,992 341.0 $ 61,049

PPM RPD OCM M&A CBCA
U.S. General Services Administration

Operating Expenses

OE-6

property, and the rental payments of office space for the Management and Administration

program. 

-$373 thousand and -4 FTE combined decrease from the programs under this fund for 

reductions in cost associated with administrative support and program operations, and to 

better align budgeted personnel compensation and benefits costs with estimated costs for 

FY 2015 based on historical analysis. 

-$83 thousand combined decrease in travel and transportation costs from the programs 

under this fund to commit to the on-going agency-wide effort to limit travel and transportation 

costs to those that are mission-critical.

-$147 thousand combined decrease in administrative costs including communications, 

printing and reproduction, supplies, materials, and equipment from the programs under this 

fund.

-$2,301 thousand decrease in contractual services from the Personal Property Management, Communications and Marketing, Management and Administration, and Civilian Board 

of Contract Appeals programs by leveraging the expertise gained in-house, increasing efficiency of operations, and eliminating redundant services. 
U.S. General Services Administration

Operating Expenses

OE-7

Obligations by Object Classification 

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request 

11.1 Full-time, permanent.................................. $ 28,058 $ 30,860 $ 30,868

11.3 Other than full-time permanent..................... 2,326 2,127 2,177

11.5 Other personnel compensation..................... 258 288 384

11.8 Special personnel services payments............ 630 593 16

12.1 Civilian personnel benefits........................... 8,088 8,424 8,782

13.0 Benefits for former personnel....................... 0 0 0

21.0 Travel and transportation of persons.............. 405 586 491

22.0 Transportation of things.............................. 7 1 13

23.1 Rental payments to GSA............................. 3,659 3,481 3,660

23.2 Rental payments to others.......................... 0 0 0

23.3 Communications and utilities....................... 180 214 188

24.0 Printing and reproduction............................ 8 18 15

25.1 Advisory and assistance services................. 1,961 2,213 1,923

25.2 Other services from non-Federal sources....... 32 24 62

25.3 Other goods & services from Federal sources. 13,453 14,173 12,124

25.4 Operation and maintenance of facilities.......... 49 48 48

25.6 Medical care............................................ 1 1 1

25.7 Operation and maintenance of equipment....... 29 27 36

26.0 Supplies and materials............................... 205 233 182

31.0 Equipment............................................... 149 155 79

42.0 Insurance claims and indemnities................. 336 0 0

99.0 Obligations, Appropriated (Annual)............ $ 59,834 $ 63,466 $ 61,049

Subtotal, PC&B............................... 39,360 42,292 42,227

Subtotal, Non-labor.......................... 20,474 21,174 18,822

99.2 Obligations, reimbursable.......................... 4,520 16,665 16,665

99.9 Total obligations........................................ $ 64,354 $ 80,131 $ 77,714
U.S. General Services Administration

Operating Expenses

OE-8

Obligations by Program 

(Dollars in Thousands)

Note: FY 2014 funding reflects a transfer of $1,600 thousand and 28 FTE from the Public 

Buildings Service in support of the CxO Consolidations including 23 FTE to the Office of 

Congressional and Intergovernmental Affairs and 5 FTE to the Office of Administrative Services. 

The Operating Expenses appropriation supports the following programs: 

The Personal Property Utilization and Donation program, which transfers personal property 

no longer needed by a Federal agency to other Federal agencies, State and local 

governments, and nonprofit organizations;

FTE obligations FTE authority FTE authority

1. Personal Property Management

 Annual appropriation 76.0 $11,235 76.0 $11,780 74.0 $10,860

 Reimbursable authority 5.0 $1,598 10.0 $3,165 9.0 $3,165

 Subtotal, PPM 81.0 $12,833 86.0 $14,945 83.0 $14,025

2. Real Property Disposal

 Annual appropriation 82.0 $14,494 90.0 $16,220 90.0 $15,468

 Reimbursable authority 6.0 $2,853 7.0 $11,500 7.0 $11,500

 Subtotal, RPD 88.0 $17,347 97.0 $27,720 97.0 $26,968

3. Office of Communications & Marketing

 Annual appropriation 35.0 $7,071 37.0 $7,034 37.0 $6,629

 Subtotal, OCM 35.0 $7,071 37.0 $7,034 37.0 $6,629

4. Management & Administration

 Annual appropriation 75.0 $18,157 103.0 $19,466 101.0 $19,100

 Subtotal, M&A 75.0 $18,157 103.0 $19,466 101.0 $19,100

5. Civilian Board of Contract Appeals

 Annual appropriation 34.0 $8,877 39.0 $8,966 39.0 $8,992

 Reimbursable authority 0.0 $69 0.0 $2,000 0.0 $2,000

 Subtotal, CBCA 34.0 $8,946 39.0 $10,966 39.0 $10,992

Total, Annual appropriated 302.0 $59,834 345.0 $63,466 341.0 $61,049

Total, Reimbursable 11.0 $4,520 17.0 $16,665 16.0 $16,665

Total, Budget Authority 313.0 $64,354 362.0 $80,131 357.0 $77,714

FY 2013 FY 2014 FY 2015

Actual Enacted Request
U.S. General Services Administration

Operating Expenses

OE-9

The Office of Real Property Utilization and Disposal, which transfers or sells unneeded real 

property assets to benefit the Federal government and surrounding communities;

The Office of Communications, which provides a full array of marketing products and 

services and represents GSA externally via the national and international media;

Management and Administration, which provides top-level, agency-wide direction and 

support activities and supports government-wide emergency response and recovery 

activities; and

The Civilian Board of Contract Appeals, which adjudicates contract claims between 

government contractors and most civilian Federal agencies.

Reimbursable Program: In FY 2015, the programs of the Operating Expenses appropriation 

anticipate to provide reimbursable services to other Federal agencies in the amount of 

$16,665 thousand and 16 FTE. This amount includes:

(1) $3,165 thousand and 9 FTE to store excess personal property during the required disposal 

screening process, when requested by the donating agency;

(2) $11,500 thousand and 7 FTE for real estate disposal services for: (a) specialized properties 

outside the purview of the Federal Property and Administrative Services Act of 1949; and 

(b) real property seized, forfeited, or foreclosed on by other agencies; and 

(3) $2,000 thousand for arbitration services the Civilian Board of Contract Appeals (CBCA) 

provides to external customers on a reimbursable basis in accordance with 5 U.S.C. 573. 

Prior to FY 2012, funding for arbitration services was collected through the Working Capital 

Fund.
U.S. General Services Administration

Operating Expenses

OE-10

Federal Acquisition Service, Personal Property Program 

FY 2015 Proposed Budget

The FY 2015 budget request provides $10,860 thousand for the Personal Property Utilization 

and Donation program, a decrease of -$572 thousand, reducing two FTE and administrative 

support for the program. 

Program Description 

The Federal Acquisition Service (FAS) Personal Property program facilitates the transfer and 

reutilization of excess Federal personal property. Personal property no longer needed by a 

Federal agency may be offered at no cost to other Federal agencies, State and local 

governments, and eligible nonprofit organizations. These functions are managed and operated 

by the Utilization and Donation program, which is funded through the Operating Expenses 

appropriation. 

Utilization and Donation: All Federal agencies must use excess personal property as the first 

source of supply. When an item is determined to be “excess,” it is first offered to other Federal 

agencies and will be transferred at no cost, if it can be used. If the property is not needed by 

any Federal agency, it is declared “surplus” and is offered to non-Federal government 

organizations on an “as is, where is” basis, with no warranty. Agencies are encouraged to 

report excess personal property to GSA through the use of GSAXcess®, to expedite the 

disposal process. 

The Utilization and Donation program saves money for recipient organizations and promotes the 

efficient use of government resources. The program includes the Computers for Learning (CFL) 

program, which transfers excess Federal computer equipment to eligible schools and non-profit 

educational organizations, giving special consideration to those with the greatest financial need. 

In FY 2013, a total of $77 million in CFL property was redistributed for continued use.
U.S. General Services Administration

Operating Expenses

OE-11

Sales: When excess personal property cannot be disposed of through re-utilization or donation, 

the FAS Personal Property Sales Program provides sales services to Federal agencies for sale 

of property directly to the public. GSA sells agency surplus property through GSA Auctions® to 

ensure quick disposal of assets, reduced administrative costs, and maximum return on 

investment. Expenses incurred to operate this segment of the Personal Property program are 

financed by the Acquisition Services Fund through a portion of the proceeds realized from the 

sale of surplus personal property and exchange/sale property.
U.S. General Services Administration

Operating Expenses

OE-12

Public Buildings Service, Office of Real Property Utilization and Disposal 

FY 2015 Proposed Budget

The FY 2015 budget request provides $15,468 thousand for the Office of Real Property 

Utilization and Disposal (RPUD), a decrease of $752 thousand from the FY 2014 enacted level. 

This program’s activities are necessary in order to comply with the Presidential memorandum 

on “Disposing of Unneeded Federal Real Estate,” Executive Order 13327, and the Federal Real 

Property Council’s efforts requiring further reductions to the federal footprint. 

Program Description 

The Office of Real Property Utilization and Disposal (RPUD) works with all Federal landholding 

agencies to develop real estate strategies (conveyances, exchanges, relocations, and sales) to 

identify and better manage under-utilized assets. The RPUD program offers Federal clients a 

wide range of realty services, expert guidance and analytical tools. Services include: 

transaction support, due diligence analysis, targeted asset reviews, highest and best use 

studies, appraisals, marketing strategies, environmental assessments and historic evaluations. 

This program leverages its services, tools and expertise to drive optimal real estate outcomes 

that are tailored to an agency’s unique mission requirements. These outcomes result in more 

efficient operation of the Federal real property portfolio. To complement its expertise and to 

enhance service offerings, RPUD provides a variety of contractual vehicles that offer Federal 

clients access to realty and environmental firms. RPUD services are available to all Federal 

landholding agencies.

RPUD employs the following programs/tools: 

Public Benefit Conveyances (PBCs): When property is no longer needed by the Federal 

Government, RPUD partners with Federal sponsoring agencies to make surplus real property 

available to eligible entities for certain public purposes such as public health, homeless 

assistance, education, law enforcement, emergency management and recreation, as authorized 

by statute. RPUD conducts compliance inspections to ensure properties are used as intended. 

In FY 2013, RPUD conducted 33 compliance inspections.
U.S. General Services Administration

Operating Expenses

OE-13

Early Transfer Authority: Early Transfer Authority (ETA) allows the Federal government to 

transfer property to non-Federal entities before the completion of environmental cleanup as long 

as safeguards are in place to protect human health and the environment. 

Lighthouse Program: The National Historic Lighthouse Preservation Act (NHLPA) authorizes 

RPUD to divest historic lighthouses in partnership with the Coast Guard and the National Park 

Service. NHLPA recognizes the cultural, recreational, and educational value associated with 

these historic resources by allowing lighthouses to be conveyed at no cost to Federal agencies, 

state and local governments, and non-profit organizations that have the resources and expertise 

to preserve and manage the asset. In the event a suitable steward is not identified, RPUD is 

authorized to divest of the property through a competitive public sale. In FY 2013, RPUD 

conveyed 12 lighthouses, 5 via public sale with total proceeds of $1,562,891, and 7 via no-cost 

transfer to public entities.

Utilization Studies: RPUD provides objective real property reviews for landholding agencies. 

These asset reviews can be targeted toward an individual asset or a portfolio of assets 

depending on the needs of the landholding agency. These studies provide the critical 

information to drive viable realty strategies. In FY 2013, RPUD completed 25 Targeted Asset 

Reviews for five agencies.

Online Auctions: As an innovator in the field of online auctions, marketing real estate through 

this method is a standard business practice for RPUD. For over a decade RPUD has been 

efficiently selling surplus properties via a dedicated auction website (realestatesales.gov). This 

sales method maximizes the sale price because it reaches a larger base of buyers at a lower 

cost than traditional outcry auctions. In FY 2013, 185 auctions were offered on 

realestatesales.gov. Of these, 167 were awarded with a total of $62,600,309 in winning bids.

Reimbursable Services: Certain federal landholding agencies have their own real estate

authority, but utilize RPUD to perform realty services on their behalf. RPUD provides these 

services through inter-agency agreements, on a reimbursable basis. Services range from the 

management and execution of all aspects of a disposition project to specific tasks to inform a 

utilization decision or implement a disposition strategy. 
U.S. General Services Administration

Operating Expenses

OE-14

Office of Communications and Marketing

FY 2015 Proposed Budget 

The FY 2015 proposed budget provides $6,629 thousand for the Office of Communications and 

Marketing (OCM), a decrease of $405 thousand from the FY 2014 enacted level. OCM will 

focus their resources on core activities that will be managed efficiently and effectively. 

Program Description

The Office of Communications and Marketing provides information on the activities of the 

agency, its products, and initiatives to GSA’s stakeholders: customers, employees, and the 

American public. 

The Media Affairs Division is the agency’s official contact point and coordination portal 

for all media interactions with GSA. The Media Affairs Division fields all media inquiries 

regarding GSA programs, products, initiatives, people, policies, and success stories.

The Communications Division plans and executes external and internal communications 

activities for the agency. The organization develops and implements enterprise-wide 

communications strategies and information campaigns across technology platforms, 

including web, video, visual communications and social media.
U.S. General Services Administration

Operating Expenses

OE-15

Management and Administration 

FY 2015 Proposed Budget

The FY 2015 proposed budget provides $19,100 thousand for Management and Administration 

activities. This funding level is $366 thousand below the FY 2014 enacted level. 

Program Description 

This program area supports a variety of general management and administrative activities 

associated with GSA internal operations. These activities include: (1) the Office of the 

Administrator and the Regional Administrators, (2) the Office of Congressional and

Intergovernmental Affairs, and (3) the Office of Mission Assurance.

The Administrator and Regional Administrators are responsible for the execution of all 

functions assigned to GSA by law and regulation. 

Office of Congressional and Intergovernmental Affairs (OCIA) is the GSA liaison with 

Congress and other Federal agencies. OCIA coordinates meetings and testimony before 

Congressional Committees, helps Congressional offices resolve issues related to GSA 

programs and services, supports the GSA legislative program with the Congress, and 

coordinates services to over 1,400 House-district and Senate-state offices for the Congress. 

The Office of Mission Assurance (OMA) executes GSA responsibilities during domestic and 

national security emergencies to aid Federal agencies and State and local governments, 

support client agency needs, and restore GSA operations. OMA ensures the continuation of the 

agency’s critical business processes by integrating and coordinating activities across all 

domains of security (physical, cyber, personnel, and industrial), HSPD-12 credentialing, 

emergency management, and contingency and continuity planning. The OMA continuity 

mission is authorized by the National Continuity Policy (NSPD-51/HSPD-20) and directly 

supports GSA responsibilities to recover and perform primary mission essential functions during 

a continuity event. OMA also supports the agency continuity mission by developing agencywide guidance, policies, plans and procedures as well as testing, training, and exercises to 

ensure readiness. OMA is also funded from the Working Capital Fund to assure the safety, 

privacy, and security of GSA facilities, people, and IT assets nationwide.
U.S. General Services Administration

Operating Expenses

OE-16

Civilian Board of Contract Appeals

FY 2015 Proposed Budget 

The FY 2015 budget provides $8,992 thousand for the Civilian Board of Contract Appeals, a 

$26 thousand increase from the FY 2014 enacted level.

Program Description 

The Civilian Board of Contract Appeals (CBCA) hears and decides contract disputes between 

Government contractors and all civilian Executive agencies (other than the National Aeronautics 

and Space Administration, the United States Postal Service, the Postal Rate Commission, and 

the Tennessee Valley Authority) under the provisions of the Contract Disputes Act of 1978 and 

associated regulations and rulings. Additionally, CBCA provides alternative dispute resolution 

services to Executive agencies, both in contract disputes that are the subject of a contracting 

officer’s decision and in other contract-related disputes. CBCA also provides arbitration 

services to external customers including the Department of Energy and the Federal Emergency 

Management Agency on a reimbursable basis.

The CBCA hears and decides other cases, including Contract Disputes Act appeals relating to 

Indian Self-Determination and Education Assistance Act contracts and appeals from 

disallowance by the Secretary of the Interior of costs payable under that Act; appeals of final 

administrative determinations of the Federal Crop Insurance Corporation pertaining to standard 

reinsurance agreements; claims involving transportation rate determinations; and travel and 

relocation expense claims by Federal civilian employees.
U.S. General Services Administration

Office of Inspector General

Fiscal Year 2015 Budget Request

Table of Contents

Appropriation Language and Program Description............................................

Amounts Available for Obligation.......................................................................

Explanation of Changes.....................................................................................

Summary of Request.........................................................................................

FY 2015 OIG Request........................................................................................

Obligations by Object Classification...................................................................

Business Component Justification

Office of Audits............................................................................................

Office of Investigations................................................................................

Office of Forensic Auditing, Evaluation & Analysis......................................

Executive Direction and Business Support..................................................

The FY 2015 Performance Plan.........................................................................

1

2

3

4

4

6

7

7

10

12

13

14
U.S. General Services Administration

Office of Inspector General

IG-1

Appropriations Language

For necessary expenses of the Office of Inspector General and service authorized by 5 

U.S.C. 3109, $66,978,000: Provided, that not to exceed $50,000 shall be available for 

payment for information and detection of fraud against the Government, including 

payment for recovery of stolen Government property: Provided further, that not to 

exceed $2,500 shall be available for awards to employees of other Federal agencies 

and private citizens in recognition of efforts and initiatives resulting in enhanced Office 

of Inspector General effectiveness.

Program Description

This appropriation provides agency-wide audit, investigative, and inspection functions to 

identify and correct management and administrative deficiencies within the General 

Services Administration (GSA), including conditions for existing or potential instances of 

fraud, waste, and mismanagement. This audit function provides internal audit and 

contract audit services. Contract audits provide professional advice to GSA contracting 

officials on accounting and financial matters relative to the negotiation, award, 

administration, repricing, and settlement of contracts. Internal audits review and 

evaluate all facets of GSA operations and programs, test internal control systems, and 

develop information to improve operating efficiencies and enhance customer services. 

The investigative function provides for the detection and investigation of improper and 

illegal activities involving GSA programs, personnel, and operations. The inspection 

function supplements traditional audits and investigations by providing systematic and 

independent assessments of the design, implementation, and/or results of GSA’s 

operations, programs, or policies.
U.S. General Services Administration

Office of Inspector General

IG-2

Amounts Available for Obligation

(Dollars in Thousands)

FY 2013

Actual

FY 2014

Enacted

FY 2015

Request

Discretionary authority:

Unobligated balance 1, start of year............ 

$768

 

$0

 

$2,000

Annual appropriation........................... $54,966 $65,000 $66,978

Reimbursable authority:

Offsetting collections........................... $600 $600 $600

Subtotal amount available for obligation $56,334 $65,600 $69,578

Discretionary authority:

 Unobligated balance, expiring................... $293 $0 $0

 Unobligated balance end of year............... $714 $2,000 $2,000

Reimbursable authority:

 Unobligated balance, expiring.................... $263 $0 $0

Total obligations $55,064 $63,600 $67,578

Obligations, Appropriated (Direct).................. $54,252 $63,000 $66,978

Obligations, Reimbursable............................

 

 

 $337 $600 $600

Net Outlays, Appropriated............................

Net Outlays, ARRA.....................................

$55,136

 $475

 

 $62,518

 $0

$66,739 

 $0

 

1

FY 2013 unobligated balance reflects Recovery Act Funds available through December 2012; FY 2015 unobligated 

balance reflects No Year Money appropriated in FY 2014.
U.S. General Services Administration

Office of Inspector General

IG-3

Explanation of Changes, Appropriated Dollars, and FTE

(Dollars in Thousands)

FTE

Budget

Authority

2014 Enacted.............................................................. 316 $63,000

2015 Request.............................................................. 333 $66,978

Net Change 17 $3,978

FTE

Budget

Authority

Maintaining Current Levels:

 FY 2015 Pay Increase (1.0%), effective January 2014

Inflation (1.7%)

Program Initiatives:

Audit False Claims Audit Report

 FAR Contractor Support

 Construction Contract

Rent Increases:

5

2

10

 $352

$272

 

 $776 

 $301

 $1,490

$787

Net Change.......................... 17 $3,978

Reimbursable Resources

 

 3 $600
U.S. General Services Administration

Office of Inspector General

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Summary of Request

The FY 2015 budget requests a total of $66,978 thousand for the Office of Inspector 

General. This represents a net increase of $3,978 thousand from the FY 2014 request

level, including the following:

$272 thousand for inflation (1.7%)

$352 thousand for cost of living allowance (1.0%) effective January 2015

$776 thousand for the False Claims Audit Support initiative

$301 thousand for the FAR Contractor Reporting initiative

$1,490 thousand for the Construction Contract Audits initiative

$787 thousand for rent increases

Reimbursable Programs: The FY 2015 OIG reimbursable request includes $600 thousand for 

the following reimbursable work: (1) $350 thousand for the Fleet Card Program; and (2) $250

thousand for on-going reimbursable work with other agencies and independent commissions. 

FY 2015 Annual CIGIE Assessment $ 163,560

FY 2015 Annual Training Request: 

Certified by the Inspector General

$ 405,000 

FY 2015 OIG Request

In response to sequestration, the GSA Office of Inspector General (OIG) implemented a 

modified hiring freeze in which only one out of every four vacancies were backfilled. At 

the beginning of FY 2014, the OIG had a significant reduction in personnel, creating an 

oversight deficiency and subsequently, an environment rife with opportunities for fraud, 

waste, and abuse. The FY 2014 appropriation allows the OIG to staff our operations to 

the OIG’s fullest capacity in order to maximize the oversight of GSA programs and 

operations. We request $66.978 million for FY 2015 to sustain FY 2014’s investment in 

hiring and meet upcoming oversight needs. 

In recent years, the OIG has achieved significant savings for the United States. Over 

the past two years, the OIG identified more than $1.2 billion in questioned funds and in 

funds that could be put to better use. In FY 2013 alone, the OIG achieved $253 million 

in criminal, civil, administrative, and other recoveries. In FY 2013, the OIG issued an 

audit report on improper management intervention in the awarding of IT contracts. 

Additionally, the OIG’s analysis of preaward audit findings brought to light for Congress 

the chronic challenges facing contracting officers. The investigation into GSA’s Western 
U.S. General Services Administration

Office of Inspector General

IG-5

Regions Conference had a reverberating effect across the federal government as the 

OIG continued to review GSA’s conference practices in response to congressional 

concerns. 

The high impact results of these and other audits, investigations, and inspections are 

indicative of the level of work that the GSA OIG has accomplished with less than full 

staffing. The OIG’s ability to carry out our mission to such great effect hinges entirely 

upon having the expertise of auditors, special agents, inspectors, and lawyers on staff. 

Accordingly, our staff’s expertise and knowledge of GSA’s programs and operations 

represent the OIG’s largest investment. 

With the FY 2014 appropriation providing necessary personnel resources, the OIG is 

hiring additional auditors throughout the country to conduct contract and internal audits 

and assist the Department of Justice (DOJ) on False Claims Act recoveries. Such cases 

are particularly significant to the taxpayer, as evidenced by an FY 2012 settlement in 

which Oracle agreed to pay the United States $199.5 million plus interest to resolve 

litigation charging a failure to meet contractual obligations to GSA. Hiring more special 

agents increases the OIG’s ability to pursue allegations of fraud and misconduct and 

achieve even greater civil and criminal recoveries. Hiring additional inspectors will 

expand the oversight of GSA programs to include reviews such as the OIG’s report on 

GSA’s executive compensation practices last year.

The FY 2015 request support necessary resources for additional personnel in support of 

program areas where additional OIG oversight and activities are necessary. As GSA 

moves towards completion of its Recovery Act construction projects, the OIG workload 

in the construction claim arena is expected to increase significantly. GSA relies on the 

OIG’s assistance to effectively defend, negotiate, and settle the contract disputes and 

claims that are bound to arise as construction projects are completed. Each project is 

subject to multiple claims, each of which requires extensive audit hours and resources 

to achieve savings for the United States. The OIG intends to hire more auditors to 

handle these claims in addition to hiring professionals for our false claims and Federal 

Acquisition Regulation (FAR) disclosure programs. 
U.S. General Services Administration

Office of Inspector General

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Obligations by Object Classification

(Dollars in Thousands)

 FY 2013

 Actual

 FY 2014

Enacted

 FY 2015

 Request

11.1 Full-time permanent $28,358 $35,148 $35,026

11.3 Other than full-time permanent $318 $165 $170

11.5 Other personnel compensation $1,495 $1,740 $1,810

11.8 Special personal services payments $0 $0 $0

11.9 Total personnel compensation $30,171 $37,053 $37,006

12.1 Civilian personnel benefits $10,127 $12,041 $12,702

21.0 Travel and transportation of persons $1,186 $1,400 $1,615

22.0 Transportation of things $62 $0 $0

23.1 Rental payments to GSA $3,745 $3,759 $4,462

23.2 Rental payments to others $0 $0 $0

23.3 Communications, utilities and 

miscellaneous charges

$307 $312 $319

24.0 Printing and reproduction $15 $23 $23

25.1 Advisory and assistance services $1,775 $3,033 $2,915

25.2 Other services $8 $8 $8

25.3

25.4

Purchases of goods and services from 

government accounts

Operation and maintenance of facilities

$5,000

$7

$5,063

$0

$5,178

$0

25.7 Operation and maintenance of 

equipment

$851 $1,108 $1,200

26.0 Supplies and materials $153 $200 $300

31.0 Equipment $845 $1,000 $1,250

42.0 Insurance claims and indemnities $0 $0 $0

99.0 Subtotal $54,252 $65,000 $66,978

99.0 Reimbursable obligations $337 $600 $600

99.9 Total Obligations $54,589 $65,600 $67,578
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U.S. General Services Administration

Office of Inspector General

Business Component Justifications

Our major operational components, the Office of Audits and Office of Investigations, share 

primary responsibility for overseeing GSA programs and operations. Additional oversight is 

provided by the Office of Forensic Auditing, Evaluation, and Analysis, which has matured to 

become a significant force multiplier in the OIG’s efforts to combat fraud, waste, and abuse. 

The Forensic Auditing Office’s value was demonstrated in the FY 2013 inspection report of 

GSA’s executive compensation practices, which grew out of the inspection staff’s work with 

the Office of Investigations that led to the FY 2012 report on GSA’s Western Regions 

Conference. Increasingly, coordinated and joint efforts by the OIG’s offices are producing 

results that lead to program correction, savings, and successful prosecutions, some of which 

are noted below. While each component’s own activities well justify its cost, we are finding 

that often the combined efforts of our professional staffs add an important dimension to the 

OIG’s arsenal against misconduct and inefficiency. The appropriations for the OIG reflect a 

prudent investment in oversight of GSA activities. 

Office of Audits

Program Description

The Office of Audits is an organization charged with overseeing GSA’s use of taxpayer 

dollars as it administers its programs and operations. To that end, we balance our audit

coverage between contract and internal audits to meet a number of needs and 

requirements:

• Program Audits which produce formal audit reports that provide GSA

management with independent assessments and input on potential

solutions to issues, when appropriate;

• Information Technology and Systems Audits to evaluate whether GSA’s 

information systems are designed to enable efficient and effective operations, 

contain adequate systems controls, are properly secured, and meet user 

requirements;

• Oversight of the Agency’s contracts for performance of the annual financial 

statements audit required under the 1990 Chief Financial Officer’s Act, and the 

annual audit of the effectiveness of GSA’s information security program and 

practices required under the Federal Information Security Management Act; 

• Non-Financial Statement Audits that provide an independent assessment of 

whether the Agency’s financial information is presented fairly in 

accordance with recognized criteria;

• Regulatory Audits conducted in accordance with applicable laws and 

regulations;

• Internal Control Audits designed to test the controls built into GSA’s programs

and systems to determine whether those controls are operating as intended

and providing reasonable assurance of achieving effective and efficient 
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U.S. General Services Administration

Office of Inspector General

operations, reliable financial and performance reporting, and/or compliance 

with applicable laws and regulations; and

• Attestation Engagements to examine selected vendors’ records and develop 

the financial information necessary for GSA contracting officers to negotiate 

favorable pricing arrangements on contract awards and administer existing 

contracts.

The goal of our audits is to support GSA’s primary business lines - acquisition services 

and real property - while ensuring their integrity, economy, and efficiency. As we strive to

monitor the agency, we maintain a keen awareness of both the value and necessity of our

audit products for the taxpayer, elected representatives, Office of Management and Budget 

(OMB), agency management, and other key stakeholders.

To ensure the most effective and efficient use of resources, the Office of Audits solicits 

information from internal and external stakeholders, including agency management and 

OMB, as part of our annual audit planning process. This information is then discussed at 

the OIG regional and headquarters levels, and an assessment of the most significant 

challenges and risks is made. These issues are subsequently targeted for review by our 

internal and contract audit staff. Results are provided to GSA officials, Congress and our 

other stakeholders through audit reports, memorandums, and the Semiannual Reports to 

the Congress.

Two recent audit reports demonstrate the significant benefits of our internal audit work. 

First, in June 2013, we reported that Federal Acquisition Service (FAS) management 

officials improperly intervened in the award and extension of Multiple Award Schedule 

(MAS) contracts. This intervention resulted in MAS contracts with inflated pricing and/or 

unfavorable contract terms and extensions where contracting staff had determined such 

a decision was not in the best interests of the United States. In addition, FAS 

management intervention undermined the authority and morale of GSA contracting 

officers. FAS management (1) allowed contractors to circumvent contracting officers 

when the contractors disagreed with contracting staff determinations, and (2) supported 

the contractors’ positions, including reassigning contracts to different contracting 

officers. In each reassignment case, the new contracting officer awarded or extended 

contracts without properly addressing significant issues identified by previous 

contracting officers.

Second, in November 2013, we reported on the Public Buildings Service’s (PBS) lack of 

policies and procedures to manage real property exchanges for services granted under 

Section 412 of the General Services Administration General Provisions, Consolidated 

Appropriations Act, 2005 (Section 412). PBS has proposed exchanging property for 

services on multiple projects around the country, including the Federal Bureau of 

Investigation Headquarters in Washington, D.C. However, it has yet to develop any 

policies or procedures to implement these exchanges and ensure they are in the best 

interest of the government and the taxpayer. The exchange of real property for services 

can be very complex, involving the valuation of both the real property and the services, 

which may not be defined up front. In some cases, a combination of services and/or real 

property may be exchanged for another combination of services and/or real property,
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U.S. General Services Administration

Office of Inspector General

further complicating the valuation effort. Given the complexity of these exchanges, PBS 

should implement policies and procedures to ensure goals and objectives are achieved 

and that the best value is obtained for the taxpayer.

In addition to our internal audit workload, our contract auditors provide extensive oversight

of billions of dollars in contracts awarded by the agency for products, services, and real

property. For instance, between October 1, 2012 and September 30, 2013, our audits of

GSA’s MAS program recommended over $1.7 billion in avoidances and recoveries. During

this period, construction contract audits resulted in savings and recoveries of more than $7

million. Contract auditors also provide key assistance to the Department of Justice in

settlements with vendors, such as the August 2013 settlement reached with RPM 

International, Inc., and its subsidiary Tremco, Incorporated for $60.9 million. Tremco failed to 

meet its contractual obligations to provide the GSA with current, accurate, and complete 

pricing information and failed to comply with the price reduction clauses of its GSA contracts. 

This settlement resolved False Claims Act violations in connection with Tremco's MAS 

contracts.

The audit work described above represents only a portion of our overall contribution to the

effective oversight of GSA. What stands out from these examples, however, is that the

Office of Audits is an integral component of the GSA OIG. Absent the work we perform,

our stakeholders, including the taxpayer, would lack an effective tool to monitor the public

resources used by the agency in executing its programs and operations.

The American Recovery and Reinvestment Act of 2009

The Recovery Act provided GSA with $5.85 billion to renovate, repair, and improve the

energy efficiency of federal buildings, to construct land ports of entry, and to acquire fuelefficient vehicles. The Recovery Act also provided funding to the GSA OIG for oversight

activities through December 31, 2012. Although that funding expired, the OIG will 

continue oversight of Recovery Act activities, with our regular funding. Our oversight will 

include audits of construction claims and assessments of GSA’s sustainability/greening 

goals and accomplishments.

FY 2015 Budget Request

FALSE CLAIMS AUDIT SUPPORT

The OIG requests $776,000 in funding for five full-time professional staff to support qui tam 

and other False Claims Act cases. Department of Justice Trial Attorneys and Assistant 

United States Attorneys rely upon the substantive expertise with GSA’s Multiple Award 

Schedule our auditors and attorneys bring to these cases, which resulted in over $545 

million in negotiated settlements between FY2010 and FY2012 alone. These priority cases 

often are complex, however, and subject to external, federal court-imposed time restrictions 

that have consequences for how the OIG carries out its planned audits. The requested 

funding will allow the OIG to develop and leverage a national cadre of specialized auditors 
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U.S. General Services Administration

Office of Inspector General

who can lead teams to provide the support the DOJ requires, without diminishing core 

oversight activities – to the detriment of the agency and the taxpayer.

FEDERAL ACQUISITIONS REGULATIONS (FAR) CONTRACTOR REPORTING

The OIG requests an additional $301,000 for two full-time professional staff to support the 

OIG’s FAR Contractor Fraud Reporting initiative. This implements the Close the Contractor 

Fraud Loophole Act, Public Law 110–252, that requires a contractor to disclose credible 

evidence of fraud and related activity connected to the award, performance, or closeout of a 

government contract. The additional funding will preserve the OIG’s ability to provide the 

level of analysis and expertise necessary to implement this mandatory program without 

reducing its core activities or increasing the time necessary to bring a disclosure to 

resolution – options which will have a costly, negative impact on the agency and the 

taxpayer.

CONSTRUCTION CONTRACT AUDITS

The OIG requests $1,490,000 in funding for ten auditors to provide construction audit 

services for GSA’s Recovery Act projects. The nature of large construction projects means 

that a single project can require multiple audits, as the OIG encountered with the San 

Francisco Federal Building Project that required eight construction claims audits between 

FY2008 and FY2009. The requested funding will ensure that the OIG’s specialized 

Construction Audit Group is able to continue its comprehensive oversight and auditing 

services in the coming years to ensure the integrity of PBS’s contracting efforts with the 

Recovery Act funds entrusted to GSA. Without additional staffing, the OIG will be forced to 

either reduce its core activities or turn down construction related audits, which could prove 

costly to the agency. 

Total Request: 17 FTE and $2,567,000

Office of Investigations

Program Description

The Office of Investigations is comprised of special agents with full statutory law 

enforcement authority; they make arrests, execute search warrants, serve subpoenas, 

and carry weapons. Allegations investigated by OIG special agents include bribery, 

kickbacks, extortion, public corruption, false claims, credit card fraud, theft, diversion of 

excess government property, counterfeit products, product substitution, false statements, 

and a variety of other fraud related crimes.

The Office of Investigations has developed and implemented an investigative action

plan which contains the following elements:

• Investigations of alleged criminal violations and civil fraud by 

contractors, employees, and others relating to GSA acquisition
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U.S. General Services Administration

Office of Inspector General

programs;

• Criminal investigations relating to the integrity of GSA programs, operations, 

and personnel;

• The development and implementation of proactive investigations which

address systemic investigative issues that cross GSA regional boundaries;

and

• Investigations of allegations into serious misconduct by high-ranking GSA officials. 

On August 19, 2013, Ohio-based RPM International, Inc., and its subsidiary, Tremco 

Incorporated, paid $60.9 million to resolve allegations that Tremco filed false claims in 

connection with two GSA MAS contracts for roofing supplies and services. The settlement 

follows an investigation that revealed that Tremco failed to provide current, accurate and 

complete pricing information to GSA and failed to comply with the price reduction clauses of 

its GSA contracts. It was also alleged that Tremco sold certain roofing materials to 

government purchasers through the GSA contracts without disclosing the availability of 

lower-cost identical materials.

Several GSA OIG investigations have resulted in federal indictments and convictions for 

Service Disabled Veteran Owned Small Business SDVOSB fraud. This year, the GSA 

OIG significantly participated in a joint investigation that led to the conviction of Silver Star 

Construction owner Warren Parker for violations of major fraud against the United States, 

wire fraud, conspiracy, money laundering, and false statements. Parker falsely claimed 

he was a service-disabled veteran and war hero, which prompted the federal government 

to award over $8 million of set-aside contracts to his company, thereby depriving true 

service disabled veterans from receiving these contracting opportunities. Parker was 

sentenced and is currently serving seven years and three months in prison and was 

ordered to pay over $6.8 million in a forfeiture judgment. 

A joint investigation of misconduct resulted in a guilty plea in FY 2013 by former FEMA 

Director, Timothy Cannon on conflict of interest charges and a significant recovery from the 

Gallup Organization. Gallup agreed to pay $10,500,000 to settle allegations that it 

improperly inflated contract prices and engaged in prohibited employment negotiations with 

the FEMA official. The qui tam complaint alleged that Gallup knowingly overstated its 

estimated labor hours in proposals for contracts and task orders by the U.S. Mint and the 

State Department, and attempted to hire Cannon after he influenced the contract award in 

favor of Gallup. 

In a cybersecurity investigation, Robert Steele was convicted in May of 2013 of 

unauthorized access to protected computers. Steele was ordered to pay restitution of over 

$300,000. Steele had illegally accessed a former employer’s computer network to access 

email and voicemail systems over 79,000 times during a two-year period to obtain 

proprietary and sensitive information. He leveraged this information on behalf of his current 

employer to undercut a MAS government contract bid (submitted by his former employer) 

by approximately $100,000. 
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U.S. General Services Administration

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The impact of such investigations has resonated throughout the agency and the 

government, and served to drive significant improvements in the way agencies spend the

public’s money. The impact has been a greater demand for agent resources that comes

with an increased public awareness of the OIG’s efforts to reduce fraud, waste, and abuse

and reports of allegations of criminal and administrative misconduct to the Office of

Investigations’ Hotline.

At the same time the Office of Investigations must continue its efforts in other core 

programs that are susceptible to fraud, such as misuse of the government purchase 

cards, fleet cards, and travel cards. Also, investigative focus was redirected to address a

growing number of threats to the integrity of the GSA. The investigations of the Office of

Investigations are also important for GSA to undertake employee actions needed to

preserve the integrity of the agency.

The above examples illustrate the important work of the Office of Investigations, and the 

variety and complexity of the schemes that must be investigated to address fraud, waste

and abuse in GSA’s multi-billion dollar activities. Without the work our special agents 

and criminal analysts perform in all these areas, the integrity of GSA programs, 

operations, and staff would be undermined to the detriment of the agency, the federal

agencies who invest their taxpayer dollars in GSA’s building and acquisition services,

and the public interest in good governance and justice.

The American Recovery and Reinvestment Act of 2009

This office will continue to investigate, through proactive and reactive measures, allegations 

of fraud relating to the ARRA. This is expected to remain a high priority for several years.

Office of Forensic Auditing, Evaluation and Analysis

Program Description

The Office of Forensic Auditing, Evaluation and Analysis uses cutting-edge technology and 

a unique blend of staffing that leverages coordinated efforts across OIG components 

resulting in both agency-wide and government-wide impact. Examples include:

GSA Practices for Executive Performance Recognition and Awards Report that 

identified numerous deficiencies that resulted in changes to GSA’s senior executive 

service management program award, and performance review structure and culture;

Forensic auditing data mining efforts led to the discovery of potential HUBZone 

registered vendors operating principal places of business outside of designated 

eligibility zones.

Engaging in projects that have direct OIG, GSA, and federal government impact, this office 

utilizes proactive and innovative methodologies that bolster traditional audit and 

investigative practices and procedures, producing significant accomplishments.
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Office of Inspector General

The OIG’s Office of Forensic Auditing, Evaluation & Analysis brings a unique combination 

of skills that focus on potentially fraudulent, improper, wasteful, and/or abusive activities 

related to GSA operations. The forensic auditing staff not only provides oversight of agency 

programs through the office’s own reviews, but supports other components in joint projects 

and develops potential cases for the Office of Investigations. These professionals are 

additionally responsible for the OIG internal evaluation and analysis program which 

provides quality assurance for the organization. 

Executive Direction and Business Support Offices

Program Descriptions

Office of the Inspector General: The Inspector General (IG), Deputy Inspector General, 

and their support staff supervise, coordinate, and provide policy and programmatic direction 

for all activities within the OIG, including audit and investigation activities, Congressional 

affairs, and media relations. The IG recommends policies for and coordinates activities to 

promote economy and efficiency in the administration of and the prevention and detection 

of fraud and abuse in the programs and operations of GSA. 

Office of Counsel: This office provides legal advice and assistance to all OIG 

components nationwide, represents the interests of the OIG in connection with audits and 

investigations and in litigation arising out of or affecting OIG operations, and advises on 

statutes and regulations and assists with legislative concerns. Counsel represents the 

OIG in personnel matters before administrative tribunals and provides support to U.S. 

Attorneys’ Offices and the Department of Justice in False Claims Act and other litigation. 

The Office of Counsel also is responsible for the OIG's ethics and disclosure programs.

Office of Administration: This office consists of a multidisciplinary staff that provides 

budgetary, human resources, information technology, facilities, space, and other

administrative support and services to all OIG offices. The Office of Administration is 

responsible for providing the technical, financial, and administrative infrastructure to the 

OIG.

FY 2015 Budget Request 

The Office of Inspector General requests funds for rent increases. With the completion of 

the initial phase of the GSA Central Office renovation, GSA has indicated OIG rent will 

increase by approximately $726,367 per year. The OIG was also forced to move from the 

Bannister complex in Kansas City. GSA has indicated the OIG should expect a rent 

increase of approximately $60,633 per year. Both of these rent increases are expected to 

begin in FY 2015.

Anticipated rent increase: $787,000
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U.S. General Services Administration

Office of Inspector General

THE FY 2015 PERFORMANCE PLAN

GSA, as the federal government’s acquisition agency, leverages approximately

$66 billion in annual spending for products, services and facilities. One of its activities,

the MAS program, accounts for more than half ($39 billion) of the annual spending

figure by putting in place government-wide contracts to provide agencies with access to 

commercial products and services at volume discount pricing.

The OIG ensures the effectiveness and integrity of GSA’s business by exercising 

oversight through its audit and investigative functions. In fiscal year 2013, we issued

internal audit reports and attestation engagements that identified over $1.7 billion in 

avoidances and recoveries. Additional efforts have resulted in over $253 million in 

savings from civil and criminal judicial resolutions and more than $1.1 billion in savings 

from management’s decisions that agree with our audit recommendations. These 

recommendations have, for the most part, been the result of our oversight of the MAS

program.

We will continue to focus our efforts in areas intended to enhance the management 

and overall performance of GSA and we will align our activities so that they directly 

support the strategic goals and business objectives of GSA. We will also allocate a 

substantial portion of our audit and investigation resources to address GSA’s 

management challenges and other vulnerabilities.

Strategic Goal No. 1: Promote the economy, efficiency, and effectiveness of GSA

programs and operations, and ensure optimum value for the taxpayer.

Discussion

GSA is a 12,000 person agency that manages federal buildings, major supply and 

procurement programs, a fleet of 210,000 vehicles worldwide, telecommunications 

systems, and child-care facilities. It also provides policy leadership in areas such as

acquisitions, travel, real property, and other administrative services for the entire

federal sector.

GSA realizes that changes in today’s environment require it to be flexible in its business 

approaches and innovative in developing integrated solutions to longstanding and new

challenges. Its current goals and initiatives, continuing government reform, high-risk 

areas defined by GAO, and management challenges identified by our office remain

areas that must be addressed. These areas include acquisition programs, GSA’s 

organizational structure, sustainable environmental stewardship (green initiatives),

improving the management and utilization of federal real property, reducing GSA’s 

footprint – managing a mobile workforce, protection of federal facilities and personnel, 

the Recovery Act, financial reporting, and information technology.

Our audits and investigations assist GSA in its dual roles of policy leadership and 

provider of space, products, and services to the federal workforce, while also 

supporting GSA’s commitment to effective and efficient operations. We will devote our
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Office of Inspector General

resources to areas where focused management attention can bring about greater

efficiencies for both GSA and the taxpayers. We will continue to evaluate and bring to

GSA’s attention serious vulnerabilities and management challenges, while also making

constructive recommendations. Lastly, we will work with GSA leadership on key

initiatives to promote more effective government operations. By focusing on these core

areas, we strive to cut waste, reform contracting, and promote accountability and

innovation.

Anticipated Results

We will perform annual risk assessments of GSA’s operations to identify the most 

significant management challenges, high-risk areas, and opportunities for improvement

in programs, operations, and related activities. We will target the most significant issues 

facing GSA by planning and conducting audits and investigations in those areas. In 

addition, we will continue to provide oversight of contractor claims related to Recovery 

Act projects and to work with GSA management on key initiatives. Finally, we will 

leverage our expertise by providing comments on legislative and policy initiatives before

they become program requirements.

Performance Goal: This measure reflects OIG management’s decision to allocate

audit resources to major programmatic, internal control, compliance/regulatory, systems,

and other efforts which are aimed at helping GSA management achieve more positive

outcomes in their operations. While some of these types of audits require significant

resources, and their immediate impact is not always quantifiable, their long- term benefits 

offer the potential for significant improvements in GSA performance and increased

benefits to customers and taxpayers. Results from these efforts are based on actual

reports issued and the resulting recommended avoidances, recoveries, and resolved

management decisions.

Performance

Measure2

Performance Indicators

3

FY 2013

Actual

FY 2014

Target

FY 2015

Target

Total reports/products 106

25

120 120

Internal audit reports 21

0

15 15

Assessment products 19 15 15

Attestation Engagements 66 90 90

Value of results

Avoidances & recoveries $1.7B $460M $466M

Management decisions $1.1B $405M $410M

 

2 Due to the need for real time oversight required by the American Recovery and Reinvestment Act of 2009, we issued

memorandums in addition to audit reports.

3

Targets are subject to revision. 
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U.S. General Services Administration

Office of Inspector General

Performance Goal: The OIG will direct its resources to help GSA achieve its

strategic goals and address management challenges. In identifying key program issues, 

the OIG will consider its past work, the President’s Management Agenda initiatives, 

GSA’s Strategic Plan, and areas of vulnerability identified by the OIG, GSA 

management, or GAO. The following issues represent the key management challenges 

and vulnerabilities that the OIG currently believes merit attention — acquisition

programs, GSA’s organizational structure, sustainable environmental stewardship

(green initiatives), improving the management and utilization of federal real property, 

reducing GSA’s footprint – managing a mobile workforce, protection of federal facilities 

and personnel, the Recovery Act, financial reporting, and information technology.

The following table reflects the proportion of certain OIG products that have an 

identifiable positive impact on improving agency performance. The OIG measures the

positive impact of internal audits based on input we receive from GSA managers 

through customer surveys. For attestation engagements, the OIG measures the

positive impact based on savings resulting from these engagements.

Performance

Measure

Performance Indicators

FY 2013

Actual

FY 2014

Target

FY 2015

Target

Percentage of programmatic audits and

attestation engagements with a positive

impact

94% 74% 74%

Strategic Goal No. 2: Protect the integrity of GSA programs and operations.

Discussion

One of the OIG’s fundamental responsibilities is combating and preventing waste and

criminal and civil wrongdoing in GSA programs and operations. We are committed to

using our resources to ensure the integrity of GSA operations and programs by 

focusing on areas that have vulnerabilities and control deficiencies.

The OIG works as a team in developing new approaches to protect the integrity of 

agency programs, both from external fraud and internal corruption. Both audits and 

investigations are used to pursue legal remedies against contractors who violate federal 

laws, regulations, and/or contract terms. Our organization works closely with the

Department of Justice in False Claims Act and other cases. Further, our forensic 

auditing and evaluations group has become a key player in identifying and mitigating

fraud. We also developed and implemented a process to facilitate federal contractor selfreporting required by FAR 9.406-2, 9.407-2 and 52.203-13 where contractors have

credible evidence of a violation of the federal civil False Claims Act or a criminal violation

under Title 18 of the United States Code involving fraud, bribery, conflicts of interest or

gratuities. We also review GSA programs and operations for internal corruption, such as

bribery.
IG-17

U.S. General Services Administration

Office of Inspector General

Anticipated Results

During FY 2015, our Office of Audits, Office of Investigations and Office of Forensic 

Auditing, Evaluation, and Analysis will concentrate OIG resources on achieving 

meaningful performance improvement in GSA by focusing on its top priorities, as well

as cutting waste and promoting accountability and innovation. We will direct our efforts 

to protect the integrity of GSA’s operations by identifying and assessing vulnerabilities 

associated with its rapidly changing environment. The OIG intends to take a riskbased approach and focus its expertise in areas that have vulnerabilities and control 

deficiencies. We will perform various types of audits to ensure programs operate within

legal and regulatory limits. In addition, we will seek to detect systemic vulnerabilities 

with the assistance of the forensic audit group to help us focus our investigation

resources. Our efforts will be directed towards preventing waste and wrongdoing in

GSA, increasing the awareness of GSA managers regarding the prevention of fraud

and waste, improving the detection of and the response to corruption, and increasing

the public trust in GSA’s programs and operations.

Performance Goal: The OIG intends to focus its resources and expertise on areas 

that are susceptible to waste, fraud, and wrongdoing. It intends to prevent waste and

wrongdoing within GSA by increasing awareness of the potential for wrongdoing,

identify and mitigate program and operational vulnerabilities and control deficiencies,

and pursue potential wrongdoing to the fullest extent of our ability. These areas 

include acquisition programs, GSA’s organizational structure, the protection of

federal facilities and personnel, and the Recovery Act.

The percentages shown for each outcome reflect the proportion of OIG products that 

have an identifiable positive impact on protecting the integrity of the Agency’s 

programs and operations. The OIG measures the positive impact of internal audits 

based on input we receive from GSA managers through our customer surveys. For 

attestation engagements, we measure the positive impact based on the actual 

savings resulting from these engagements. Performance measures under this goal 

are reflected in the next three charts.

Performance

Measure

Performance Indicators

FY 2013

Actual

FY 2014

Target

FY 2015

Target

Impacted program integrity in the following 

areas: Compliance/Regulatory and 

attestation engagements, and 

accountability issues

85% 74% 74%
IG-18

U.S. General Services Administration

Office of Inspector General

The following table reflects the planned allocation of the Office of Audits’ resources 

between attestation engagement issues, as well as internal audits of GSA programs and 

operations. (OIG Strategic Goals #1 and #2)

Type of Audit

Workload Indicators

FY 2013

Actual

FY 2014

Target

FY 2015

Target

% Dollars % Dollars % Dollars

Attestation Engagements:

Appropriated 60% $10.5M 55% $9.6M 55% $11.0M

Internal Audits:

Appropriated 38% $6.7M 45% $7.9M 45% $ 9.0M

Recovery Act

Audits:

Appropriated 2% $0.3M 0% $ -- 0% $ --

Total 100% $17.5M 100% $17.5M 100% $20.0M

The following table reflects the Office of Audits’ plan to focus internal audit resources on

reviews that assist GSA in achieving its program and operational goals. (OIG Strategic 

Goals #1 and #2)

 

4

Includes American Recovery and Reinvestment Act of 2009 Memorandums.

Internal Audit

Types

Workload Indicators

FY 2013

 Actual

FY 2014 FY 2015

Target Target

% Dollars % Dollars % Dollars

Performance:

Programmatic

4

88% $6.2M 79% $6.3M 79% $7.1M

Internal Control 3% $0.2M 3% $0.2M 3% $0.2M

Compliance/Regulatory 4% $0.2M 3% $0.3M 3% $0.3M

System 0% $0.0M 10% $0.7M 10% $0.9M

Financial 6% $0.4M 5% $0.4M 5% $0.5M

Total 100% $7.0M 100% $7.9M 100% $9.0M
IG-19

U.S. General Services Administration

Office of Inspector General

OIG Strategic Goal No. 3: Develop new and better ways of conducting business to

enhance organizational performance and provide a healthy environment for the 

workforce.

Discussion

We will improve and integrate administrative activities and processes to support the 

OIG’s strategic planning and business goals. Our efforts will emphasize both 

technology and people in conducting our business to promote more efficient services

and a healthier environment. Timely, cost effective, and quality products and services 

are critical in today’s fast paced and changing environment. Our work products must be

responsive to GSA and customer needs. Continued improvements in timeliness and

operating efficiency will be achieved by reassessing existing business processes,

employing technology to the extent possible, and improving management coordination

efforts. Management improvements already have been implemented and that process 

continues to ensure that quality services are delivered to our workforce through 

collaborative planning and sound fiscal management. 

Anticipated Results

We expect greater workforce and technology planning through improved financial 

management practices. Efforts will continue to enhance the working environment of 

Regional and Central Office locations. A priority has been set to provide helpful 

information to our workforce in a timely manner to ensure they are aware of the various 

benefits and resources available to them as OIG employees.

Performance Goal: This performance measure reflects how customers perceive

available products and services. The Office of Audits uses customer surveys to 

gauge the level of customer satisfaction. The areas that are covered by the

surveys are: meeting customer needs, clarity of information provided, relevancy, 

timeliness, and added value. Activity is evaluated against a “standard” that reflects

“expected average performance.”

Performance

Measure

Performance Indicators

Standard FY 2013

Actual

FY 2014

Target

FY 2015

Target

Effectiveness- Scale: 1-5

Customer Surveys (5 high)

Audit and attestation 

engagement reports

4.0

5

95% 90% 90%

 

5

Each customer survey has an average score of 4.0 or higher on a scale from 1 to 5, where 1 indicates 

the individual strongly disagrees and 5 indicates that the individual strongly agrees.
U.S. General Services Administration

Office of Inspector General

IG-20

 

6 We perform both attestation engagements and internal audits. We have identified different performance standards in 

terms of days and hours for each type. The performance and target goals represent the composite result, in terms of 

percentage of time, that the office meets various product standards measured in direct hours and days estimated to 

accomplish work products.

Performance Goal: This performance measure demonstrates the timeliness and

effectiveness of products and services. OIG products and services are evaluated 

against a standard that reflects “expected average performance.” For example, if a 

performance standard for completion of a particular type of work product is 90 days, it 

means that the product will be completed in 90 days or less. If the target is 65 percent, 

that means that 65 percent of the OIG products will meet the standard.

The Office of Audits establishes two unique targets for attestation engagements and 

internal audits—one measures the direct work hours (cost effectiveness) and the 

other measures the days (timeliness) it takes to complete a work product. The 

performance standards listed below reflect the percentage of time that the office 

performs attestation engagements or internal audits within the established

standards, absent a need to address emergent or higher priorities that impact our

planned allocation of resources.

Performance

Measure

Performance Indicators

Standard

6 FY 2013

Actual

FY 2014

Target

FY 2015

Target

Audits and Attestation

Engagements:

Cost effectiveness

Direct hours to perform audits

and attestation engagements 

based on a unique performance

standard for each type.

Attestation

Engagements

Internal

Example hours:

Preawards – 1100 

hours

Programmatic – 2500 hours 

Compliance/Regulatory – 900 

hours

60%

50%

68%

72%

68%

72%

Timeliness

Days to perform audits and

attestation engagements 

based on a unique 

performance standard for

each type.

Attestation

Engagements

Internal

Example days:

Preawards – 110 days

Programmatic – 250 days 

Compliance/Regulatory – 180 

days

23%

67%

62%

72%

62%

72%
U.S. General Services Administration

Office of Inspector General

IG-21

The Office of Investigations established a set of standards that govern investigative activities.

Performance

Measure

Performance Indicators

Standard FY 2013

Actual

FY 2014

Target

FY 2015

Target

Fraud/

Other Crime

Ensure investigative resources

are focused on quality cases, 

ensure that criminal cases

referred to prosecuting authorities 

are appropriately substantiated to

support judicial action.

64% 60% 60%

Investigative

Recoveries

Ensure effectiveness of

investigative activities ensure 

monetary results are achieved 

from investigative cases in the 

form of civil settlements, criminal 

case fines, and restitution and 

other monetary recoveries. 

$253

Million $40 Million $40 Million

Priority I 

Investigative Cases

Assure investigative cases are

addressing issues significant in 

nature which have impact of 

agency operations, ensure that 

the investigative workload 

involves priority one investigative 

cases.

73% 70% 70%

Integrity Awareness

Briefings

Ensure agency officials are aware

of criminal trends and program

issues vulnerable to fraud, Office

of Investigations will conduct fraud

integrity awareness briefings for 

agency personnel.

50 Integrity 

Awareness 

Briefings

40 Integrity 

Awareness 

Briefings

40 Integrity 

Awareness 

Briefings

Judicial Actions Assure effectiveness of 

investigative activities; ensure 

results are achieved from 

investigative cases in the form of 

judicial actions, that being the filing

of criminal or civil cases, 

interventions in qui tam actions, 

and verdicts, settlements, and 

pleas in criminal and civil actions.

177 judicial 

actions

130 judicial 

actions

130 judicial 

actions
U.S. General Services Administration

Office of Inspector General

IG-22

Investigation descriptions:

Priority I – Involves allegations concerning GSA programs, operations, and/or personnel that 

have one or more of the following characteristics:

• Criminal or civil violation with a loss to the government of $250,000 or more;

• GSA contractor integrity issue (suspension/debarment) involving potential or 

actual contracts with a value of $250,000 or more;

• Significant health or safety issue;

• Corruption of GSA official/employee; and/or

• Serious integrity issue involving GS-15 or above.

Priority II – Involves allegations concerning GSA programs, operations, and/or personnel that 

have one or more of the following characteristics:

• Criminal or civil violation with a loss to the government of less than $250,000;

• GSA contractor integrity issue (suspension/debarment) involving potential or 

actual contracts with a value of less than $250,000; and/or

• Serious integrity issue involving GS-14 or below.

The Office of Administration and Office of Counsel to the IG developed the following performance 

standards in specific targeted areas.

Performance

Measure

Performance Indicators

Standard FY 2013 

Actual

FY 2014

Target

FY 2015

Target

FOIA Requests

Meets statutory timeframes for

FOIA requests sent directly to the

OIG.

95% 80% 80%

System Availability

Systems are available to all OIG

users 92 percent of the time.

98% 97% 97%

Provide Information

Resources

Requests to review 

hardware/software applications are

responded to within 2 days.

100% 95% 95%

Budget & 

Management Reports

Reports are completed within

required timeframes within 5 days of 

a reporting period.

100% 95% 95%
U.S. General Services Administration

ALLOWANCES AND OFFICE STAFF FOR FORMER PRESIDENTS

Fiscal Year 2015 Budget Request

CONTENTS

Appropriations Language.................................................................................................... 2

Program Description ........................................................................................................... 2

Explanation of Changes ...................................................................................................... 3

Summary of the Request .................................................................................................... 4

Amounts Available for Obligation........................................................................................ 6

Obligations by Object Classification.................................................................................... 7

Budget Request by Former President................................................................................. 8
U.S. General Services Administration

Allowances and Office Staff for Former Presidents

FP-2

Appropriations Language

 For carrying out the provisions of the Act of August 25, 1958 (3 U.S.C. 102 note), 

 and Public Law 95-138, $3,344,000. 

Program Description 

This appropriation provides pensions, office staffs, and related expenses for former 

Presidents Jimmy Carter, George H.W. Bush, William Clinton, and George W. Bush,

and for postal franking privileges for the widow of former President Ronald Reagan.
 U.S. General Services Administration

 Allowances and Office Staff for the Former Presidents

FP-3

Explanation of Changes

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

2,952 3,550 3,344

Maintaining Current Levels:

 FY 2015 Pay Increase (1%), Effective January 2015 $ 8

Program Decreases:

Decrease in Printing and Communications -31

Decrease in Contractual Services -118

Decrease in Supplies, Materials, and Equipment -47

Decrease in Travel and Transportation -32

 Subtotal, Program Decreases........................................................................ -$ 228

Program Increases:

Increase in Benefits of Former Personnel 2

Increase in Rental Payments 12

 Subtotal, Program Increases........................................................................$ 14

Total Adjustments............................................................................ -$ 206
U.S. General Services Administration

Allowances and Office Staff for Former Presidents

FP-4

Summary of the Request

The FY 2015 proposed budget provides a total of $3,344 thousand for the annual pensions of 

the former Presidents and compensation of their office staffs and related expenses.

Net decrease of $206 thousand as follows:

$10 thousand for increased pension for all former Presidents, and increased health 

benefits costs for former Presidents GW Bush and Clinton. Staff salaries are limited to 

$96 thousand per annum by 3 U.S.C. 102, note subparagraph (b).

$12 thousand for increased rental payments to GSA for former Presidents Carter, 

Clinton, and GW Bush.

-$31 thousand for decreased communication and printing costs for all former 

Presidents.

-$118 thousand for decreased costs in contractual services for all former Presidents.

-$47 thousand for decreased supplies, material, and equipments costs for former 

Presidents Carter, GHW Bush, and GW Bush.

-$32 thousand for decreased travel and transportation costs for former President GW 

Bush.
 U.S. General Services Administration

 Allowances and Office Staff for the Former Presidents

FP-5

Program increases and decreases by former President:

For former President George W. Bush, -$145 thousand: The FY 2015 budget 

provides decreases of -$6 thousand for printing and communications, -$82 thousand for 

contractual services, -$31 thousand for supplies, materials, and equipment, and -$32 

thousand for travel and transportation, as well as increases of $3 thousand for pension 

and health benefits, and $3 thousand for rental payments to GSA.

For former President William J. Clinton, $1 thousand: The FY 2015 budget provides 

decreases of -$2 thousand for printing and communications, and -$4 thousand for 

contractual services, as well as increases of $3 thousand for pension and health 

benefits, and $4 thousand for rental payments to GSA.

For former President George H.W. Bush, -$24 thousand: The FY 2015 budget 

provides decreases of -$9 thousand for printing and communications, -$12 thousand for 

contractual services, and -$5 thousand for supplies, materials, and equipment, as well 

as an increase of $2 thousand for pension benefits.

For former President James E. Carter, -$37 thousand: The FY 2015 budget provides 

decreases of -$13 thousand for printing and communications, -$20 thousand for 

contractual services, and -$11 thousand for supplies, materials, and equipment, as well 

as an increase of $2 thousand for pension benefits and $5 thousand for rental payments 

to GSA. 

For the widow of former President Ronald W. Reagan, -$1 thousand: The FY 2015

budget provides a decrease of $1 thousand for printing and communications. 
U.S. General Services Administration

Allowances and Office Staff for Former Presidents

FP-6

Amounts Available for Obligation

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request 

Discretionary authority:

 Annual appropriation..................................... 3,671 3,550 3,344

Unobligated balance, rescinded.......................... -7 0 0

Unobligated balance, sequestered........................ -144 0 0

Unobligated balance, end of year......................... -567 0 0

Total, obligations................................................ 2,952 3,550 3,344

 Net Outlays 2,827 3,548 3,358
 U.S. General Services Administration

 Allowances and Office Staff for the Former Presidents

FP-7

Obligations by Object Classification

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Request

FY 2015 

Request

11.8 Special personnel services payments............ 281 288 288

12.1 Civilian personnel benefits........................... 212 286 286

13.0 Benefits for former personnel....................... 828 832 842

21.0 Travel and transportation of persons.............. 57 104 72

23.1 Rental payments to GSA............................. 1,155 1,141 1,153

23.3 Communications and utilities....................... 147 202 185

24.0 Printing and reproduction............................ 27 64 50

25.1 Advisory and assistance services................. 124 205 160

25.2 Other services from non-Federal sources....... 0 10 10

25.3 Other goods & services from Federal sources. 35 112 50

25.4 Operation and maintenance of facilities.......... 51 69 58

26.0 Supplies and materials............................... 27 65 64

31.0 Equipment............................................... 8 172 126

99.0 Obligations, Appropriated (Annual)............ $ 2,952 $ 3,550 $ 3,344

Subtotal, PC&B............................... 1,321 1,406 1,416

Subtotal, Non-labor.......................... 1,631 2,144 1,928
U.S. General Services Administration

Allowances and Office Staff for Former Presidents

FP-8

Budget Request by Former President

(Dollars in Thousands)

TOTAL

$ 288

286842

72

1,153

185

50

278

64

126

$ 3,344

WIDOW REAGAN

$ 0

000060000

$ 6

G W BUSH

$ 96

102214

10

424

9520863560

$ 1,142

CLINTON

$ 96

119218

0

429

131826

7

26

$ 952

G H W 

BUSH

$ 96

65

205

62

183

6010702040

$ 811

CARTER

$ 0

0

205

0

117

11

2

96

20

$ 433

 Personnel Compensation................................. Personnel Benefits......................................... Benefits for Former Presidents (pensions)........... Travel........................................................... Rental Payments to GSA.............................. Communications, Utilities, and Misc....................... Printing............................................................ Other Services.................................................. Supplies.......................................................... Equipment.........................................................FY 2015 Request

*Personnel Compensation and Benefits for the staff of former President Carter are provided by contract support categorized under 'Other Services'.
U.S. General Services Administration

FEDERAL CITIZEN SERVICES FUND

Fiscal Year 2015 Budget Request

CONTENTS

Combination of the Federal Citizen Services Fund and the Electronic Government Fund ......................2

Appropriations Language..........................................................................................................................2

Analysis of Language Provisions and Changes .......................................................................................3

Program Description .................................................................................................................................4

Summary of the Request ..........................................................................................................................5

Program Financing....................................................................................................................................8

Explanation of Changes, Appropriated Dollars and FTE................................................................. 9

Amounts Available for Obligation................................................................................................... 10

Obligations by Object Classification............................................................................................... 11

Office of Citizen Services and Innovative Technologies.........................................................................12

Office of Citizen Services ............................................................................................................... 12

Office of Innovative Technologies.................................................................................................. 13

Office of Information Technology Services Solutions .................................................................... 16
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-2

Combination of the Federal Citizen Services Fund and the Electronic 

Government Fund

GSA proposes the combination of the funding and authorities of the Federal Citizen Services 

Fund (FCSF) and the Electronic Government (E-Gov) Fund in FY 2015. The mission and 

purposes of the two funds are similar, creating opportunities for improved services, efficiency, 

and savings through the consolidation of authorization and appropriations. 

Increased availability of access to the internet has created opportunities to merge the functions 

of the FCSF and the E-Gov Fund while improving the ability of the Federal government to 

interact with citizens and businesses. 

As a matter of parity, all subsequent tables in this section of the Congressional Justification 

include combined figures for the E-Gov Fund and the Federal Citizen Services Fund for fiscal 

years FY 2013 through FY 2015.

Appropriations Language

For necessary expenses of the Office of Citizen Services and Innovative Technologies, 

including services authorized by 40 U.S.C. 323[, $34,804,000] and 44 U.S.C. 3604; and for 

necessary expenses in support of interagency projects that enable the Federal 

Government to enhance its ability to conduct activities electronically, through the 

development and implementation of innovative uses of information technology; 

$53,294,000, to be deposited into the Federal Citizen Services Fund: Provided, That the 

previous amount may be transferred to Federal agencies to carry out the purpose of the 

Federal Citizen Services Fund: Provided further, That the appropriations, 

revenues, reimbursements, and collections deposited into the Fund shall be available until 

expended for necessary expenses of Federal Citizen Services and other activities that enable 

the Federal Government to enhance its ability to conduct activities electronically in the 

aggregate amount not to exceed $90,000,000[. Appropriations]: Provided further, That 

appropriations, revenues, reimbursements, and collections accruing to this Fund during fiscal 

year [2014]2015 in excess of such amount shall remain in the Fund and shall not be available 

for expenditure except as authorized in appropriations Acts: Provided further, That any 
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-3

appropriations provided to the Electronic Government Fund that remain unobligated as 

of September 30, 2014, may be transferred to the Federal Citizen Services Fund: Provided 

further, That the transfer authorities provided herein shall be in addition to any other 

transfer authority provided in this Act.

Analysis of Language Provisions and Changes 

The appropriations language combines the Electronic Government (E-Gov) Fund with the 

Federal Citizen Services Fund (FCSF). 

The following language incorporates the authorizing language for E-Gov into the FCSF 

appropriations language, establishes additional activities for the FCSF previously funded 

by the E-Gov Fund, and includes funding for E-Gov activities in the appropriation for 

FCSF:

“For necessary expenses of the Office of Citizen Services and Innovative Technologies, 

including services authorized by 40 U.S.C. 323 and 44 U.S.C. 3604; and for necessary 

expenses in support of interagency projects that enable the Federal Government 

to enhance its ability to conduct activities electronically, through the development 

and implementation of innovative uses of information technology; $53,294,000, to 

be deposited into the Federal Citizen Services Fund:”

The following language incorporates authorities from the E-Gov annual appropriations 

act into the FCSF appropriations language. This language permits FCSF to transfer 

funds to other agencies to implement E-Gov projects:

“Provided, That the previous amount may be transferred to Federal agencies to 

carry out the purpose of the Federal Citizen Services Fund:”

The following language updates the FCSF language to include reimbursements in 

resources identified as available, clarifies that all available funds below the stated 

$90,000 thousand limitation in the FCSF have a no-year period of availability, and 

incorporates E-Gov authorities:
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-4

“Provided further, That the appropriations, revenues, reimbursements, and collections 

deposited into the Fund shall be available until expended for necessary expenses of 

Federal Citizen Services and other activities that enable the Federal Government to 

enhance its ability to conduct activities electronically in the aggregate amount not to 

exceed $90,000,000”

The following language maintains that the FCSF retains any resources in excess of the 

$90,000 thousand limitation, subject to authorization in subsequent appropriations acts:

“Provided further, That appropriations, revenues, reimbursements, and collections 

accruing to the Fund and shall not be available for expenditure except as authorized in 

appropriations Acts:”

The following language authorizes the combining of the unobligated balances of the EGov Fund and the FCSF:

“Provided further, That any appropriations provided to the Electronic Government 

Fund that remain unobligated as of September 30, 2014, may be transferred to the 

Federal Citizen Services Fund: “

The following language provides transfer authorities previously included in the E-Gov 

appropriations language.

“Provided further, That the transfer authorities provided herein shall be in addition 

to any other transfer authority provided in this Act.”

Program Description 

The Federal Citizen Services Fund appropriation provides for the salaries and expenses of the 

Office of Citizen Services and Innovative Technologies, inter-agency electronic government, 

and digital services. The fund provides individuals, businesses, other governments, and the 

media simpler and timelier access to Federal information, services, benefits, and business
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-5

opportunities from the government via the internet and other electronic means. The fund also 

provides assistance to other Federal agencies in digital technology projects.

OCSIT leads several interagency groups to share best practices and develop strategies for 

improving the way government provides services to the American public, provides information 

and services to the public , operates websites, provides direct telephone , e-mail, and on-line 

assistance to citizens , offers simple and cost-effective contact center solutions to customer 

Federal agencies , and coordinates the publication and distribution of information through the 

Government Printing Office (GPO) Public Documents Distribution Center in Pueblo, Colorado.

The OCSIT E-Gov program furthers the implementation of the E-Gov Act of 2002, the 

Government Performance and Results and Modernization Act of 2010 (GPRA/MA) and 

Government Paperwork Elimination Act (GPEA) of 1998, which calls upon agencies to provide 

the public with optional use and acceptance of electronic information, services, and signatures, 

when practicable. The E-Gov program is designed to establish an efficient set of services and 

solutions to enable civilian agencies to access key strategic information technology (IT) 

expertise, develop pilots and support the implementation of developed projects.

The Federal Citizen Services Fund also supports digital service activities across government by 

providing core capacity, shared services and solutions, and technical expertise to agencies on

projects that leverage digital technologies.

The Federal Citizen Services Fund is financed from annual appropriations to pay for the salaries 

and expenses of OCSIT staff and Citizen Services programs. Reimbursements from Federal 

agencies pay for the direct costs of information services OCSIT provides on behalf of the 

agencies. The Federal Citizen Services Fund also receives funding from user fees for 

publications ordered by the public, payments from private entities for services rendered, and 

gifts from the public. All income is available without regard to fiscal year limitations, but is 

subject to an annual aggregate expenditure limit as set forth in appropriation acts.

Summary of the Request
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-6

The FY 2015 proposed budget provides a total of $53,294 thousand and 97 FTE for the

Federal Citizen Services Fund. Of that amount, $39,159 thousand is for the Office of Citizen 

Services and Innovative Technologies including digital service activities, an increase of $4,355

thousand and 7 FTE from FY 2014 enacted levels; and $14,135 thousand is for electronic 

government activities, a decrease of $1,865 thousand from FY 2014 enacted levels.

OCSIT will use this funding to support current systems and provide new ways for citizens, 

businesses, other governments, and the media to easily obtain information and services from 

the government. OCSIT will oversee efforts to support the adoption of emerging technologies, 

and transparent, accessible Government, through projects that drive innovation, performance, 

and accountability throughout the Federal Government.

As part of the Digital Government Strategy efforts which began in 2012, projects include

government-wide collaboration platforms and tools; key government services and information 

delivered to mobile devices; innovative technology platforms that enable citizens to easily and 

more cost-effectively obtain information and services from the government than through other 

channels; Data.gov, the central data portal providing access to high value public data; and 

providing information and services via printed media and telephone.

Working closely with other government agencies—Federal, state, local, and international—

OCSIT collects, consolidates and creates information and makes it user-friendly and available to 

the public. OCSIT will focus greater resources on new media and citizen engagement tools, 

and government-wide citizen service measurement, best practices, and transformation. The 

program will continue to provide information and services directly to the public efficiently and 

effectively via innovative technologies, the web, phone, e-mail, and printed media. 

The FY 2015 budget requests funding for E-Gov project areas that will continue to drive 

innovation, performance, and accountability throughout the Federal Government through the 

use of information technology, increase transparency of Federal operations, and enhance 

citizen participation in their government. These investments enable agencies across the 

government to be more productive, deliver better results through adoption of innovative 

technologies, or break down barriers or challenges that would be difficult for a single agency to 

tackle. It is also more efficient for the Government to build one IT capability to address 
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-7

functionality than to have each agency build and manage separate capabilities – thus reducing 

redundancy.
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-8

Program Financing 

The Federal Citizens Services Fund is financed from annual appropriations to pay for the 

salaries and expenses of OCSIT staff and Citizen Services programs and to maintain a 

centralized, Federal agency development environment supporting the use of the Internet or 

other electronic methods to provide individuals, businesses, other government agencies, and 

the media with simpler and timelier access to Federal information, benefits, services, and 

business opportunities. E-Gov funds are spread across multiple, complex projects which are 

intended to create and incubate information technology capabilities that can eventually be 

transferred to appropriate business owners to sustain them them over the long term. 

Reimbursements from Federal agencies pay for the direct costs of several information services 

OCSIT provides on behalf of the agencies. This includes the cost of National Contact Center’s 

services, the cost of use of the toll-free publication ordering system for agencies’ special 

promotions, the cost of distributing publications through the Government Printing Office facility 

in Pueblo, CO, and the cost of USA Contact services which provide Federal agencies the ability 

to acquire contact center services from pre-qualified vendors. 

The FCSF also receives funding from the following sources: 

Funds from other agencies in support of innovative initiatives that are joint efforts or that

OCSIT supports on behalf of the other agency 

User fees from the public for publications ordered through the Consumer Information 

Catalog. Fees are collected to offset administrative expenses of orders submitted by mail.

Other income incidental to OCSIT activities, primarily payments from private sector groups 

to cover the cost of distributing government publications

Gifts to defray costs associated with the Consumer Action Handbook and other 

information and educational materials and related activities

All resources are retained in the fund without fiscal year limitation, but all resources in excess of 

the annual aggregate expenditure limit must be authorized for obligation in subsequent annual 

appropriations acts. 
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-9

Explanation of Changes, Appropriated Dollars and FTE

(Dollars in Thousands) 

Note: As a matter of parity, the above table reflects combined figures for the E-Gov Fund and 

the Federal Citizen Services Fund for fiscal years FY 2013 through FY 2015

FTE FY 2013 

Actual FTE FY 2014 Enacted FTE FY 2015 Request

80 44,067 90 50,804 97 53,294

Maintaining Current Levels:

 FY 2015 Pay Increase (1%), Effective January 2015 $ 141

Program Decreases:

Travel 0.0 -6

Transportation 0.0 -5

Printing and Reproduction 0.0 -249

Supplies and materials 0.0 -2

Equipment 0.0 -5

 Subtotal, Program Decreases........................................................................ 0.0 -267

Program Increases:

PC&B FTE Conversion from Contractual Services 7.0 573

Advisory and Assistance Services 0.0 1,817

Other Goods & Services from Federal Sources 0.0 226

 Subtotal, Program Increases........................................................................ 7.0 2,616

Total Adjustments............................................................................ 7.0 $ 2,490
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-10

Amounts Available for Obligation

(Dollars in Thousands)

Note: As a matter of parity, the above table reflects combined figures for the E-Gov Fund and 

the Federal Citizen Services Fund for fiscal years FY 2013 through FY 2015

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

Unobligated balance, start of year........................ $ 11,166 $ 11,878 $ 11,878

Discretionary authority:

 Annual appropriation.................................... 46,500 50,804 53,294

Total Collections:

Reimbursable Services:

From Federal Agencies.......................... 7,379 11,000 8,715

From the Private Sector......................... 306 190 190

User Fees............................................... 33 50 50

Gifts from the Private Sector........................ 21 21 19

Change in Unfilled Customer Orders.................. -672 0 0

Subtotal, reimbursable authority............................. 7,067 11,261 8,974

Recovery of prior-year obligations........................ 4,622

Appropriations, rescinded......................... -93

Appropriations, sequestered...................... -2,339

Unobligated balance, reimbursable..................... -2,603

Unobligated balance, direct................. -9,275 -11,878 -11,878

Total, obligations............................................... 55,045 62,065 62,268

Obligations, appropriated (no year)...........................$ 46,423 $ 50,804 $ 53,294

Obligations, reimbursable....................................... 8,623 11,261 8,974

 Net Outlays 44,921 65,243 56,897
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-11

Obligations by Object Classification

(Dollars in Thousands)

Note: As a matter of parity, the above table reflects combined figures for the E-Gov Fund and 

the Federal Citizen Services Fund for fiscal years FY 2013 through FY 2015

FY 2013 

Actual

FY 2014 

Enacted

FY 2015 

Request

11.1 Full-time, permanent................................. $ 9,208 $ 10,863 $ 11,427

11.3 Other than full-time permanent.................... 160 0 0

11.5 Other personnel compensation.................... 80 120 123

11.8 Special personnel services payments............ 156 1,312 1,312

12.1 Civilian personnel benefits.......................... 2,580 3,087 3,234

21.0 Travel and transportation of persons............. 43 63 57

22.0 Transportation of things............................. 22 25 20

23.1 Rental payments to GSA............................ 791 0 0

23.3 Communications and utilities...................... 135 138 138

24.0 Printing and reproduction............................ 514 613 364

25.1 Advisory and assistance services................. 26,520 28,900 30,717

25.3 Goods & services from Gov't accounts.......... 5,776 5,650 5,876

26.0 Supplies and materials.............................. 2 17 15

31.0 Equipment.............................................. 7 16 11

42.0 Insurance claims and indemnities.................... 429 0 0

99.0 Obligations, appropriated........................ $ 46,423 $ 50,804 $ 53,294

Subtotal, PC&B.............................. 12,184 15,382 16,096

Subtotal, Non-labor......................... 34,239 35,422 37,198

99.0 Obligations, reimbursable........................ 8,623 11,261 8,974

99.9 Total obligations....................................... $ 55,046 $ 62,065 $ 62,268

Full-Time Equivalents (FTE) 80.4 90.0 97.0
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-12

Office of Citizen Services and Innovative Technologies

The Office of Citizen Services and Innovative Technologies (OCSIT) was established to better 

serve the public and to create cost-effective government-wide solutions in accordance with the 

Administration’s new technology agenda and Open Government initiative. It serves as a 

centralized location for the public to efficiently find and use information about Federal programs, 

benefits, and services. OCSIT identifies, tests, and deploys innovative technologies that allow 

Federal agencies to provide improved services and to facilitate an open, collaborative, and 

transparent government. Working closely with other government agencies—Federal, state, 

local, and international—OCSIT collects, consolidates and creates information and services to 

make them user-friendly and available to the public. 

OCSIT fulfills its mission through three major programs: the Office of Citizen Services; the Office 

of Innovative Technologies; and the Office of Information Technology Services Solutions; 

Office of Citizen Services

The Office of Citizen Services (OCS) meets citizen needs for information, services, and 

engagement with their government through an array of direct services via the Internet, phone, 

email, and print. 

OCS’ main activities are associated with two Centers:

● The Federal Citizen Information Center (FCIC) is responsible for delivering timely, 

consistent, and accurate government information and services to the public through multiple, 

integrated channels and includes the following organizations: 

o The Contact Center Services Division, which manages the National Contact Center 

(NCC) at 1-800-FED-INFO, provides telephone, email, FAQ knowledge base, and 

personal on-line assistance to citizens in support of other digital chnnels; 

o The Web Management and Content Division, which manages content for USA.gov, 

GobiernoUSA.gov, and Kids.gov, also provides content via social media, email 

subscription services, and mobile access programs for agencies to reach citizens 
U.S. General Services Administration

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FCSF-13

where they choose to consume content. In FY 2013, the public visited USA.gov and 

GobiernoUSA.gov over 66 million times. Mobile visits grew 100% in FY 2013, and 

interactions through social media grew over 105% in FY 2013 compared to FY 2012;

o Publications Services and Citizen Outreach, which provides printed and digital 

publications on behalf of over 40 federal agencies to provide the public information

about government programs, benefits, and services and promotes OCS information 

products and services to the public through social media, radio and print media, as 

well as outreach to teachers, librarians, and community groups.

● The Center for Excellence in Digital Government, which transforms how the government 

delivers service and information to the public through the use of leading practices, analytics, 

training, citizen service standards, and leveraging communities of practice.

Office of Innovative Technologies

The Office of Innovative Technologies (OIT) develops information technology projects and staff 

support for Electronic Government (E-Gov) initiatives that enable agencies to deliver the most 

effective and efficient services to citizens while advancing open government and increasing

transparency in government. OIT identifies, tests, and releases new and innovative 

technologies and platforms for government-wide use. OIT will expand and enhance digital 

service activities across government by providing core capacity, shared services and solutions, 

and technical expertise to agencies on projects that leverage digital technologies.

The organization also develops, manages, and provides staffing support for most of the E-Gov 

project areas. OIT leverages the E-Gov mission1to support key initiatives that continue to 

improve the efficiency and effectiveness of Government operations through information 

technology.

 

1

The E-Government Fund was created by the E-Government Act of 2002 in order to, “...(A) make Federal 

Government information and services more readily available to members of the public; (B) make it easier for the 

public to apply for benefits, receive services, pursue business opportunities, submit information, and otherwise 

conduct transactions with the Federal Government; and (C) enable Federal agencies to take advantage of 

information technology in sharing information and conducting transactions with each other and with State and local 

governments.”
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-14

E-Gov projects substantially increase transparency and accountability for performance through 

critical systems, such as Performance.gov, which has significantly improved visibility into 

Federal agency operations. Projects that are ready may transition to funding from other sources, 

such as inclusion in agency budgets or a fee-for-service funding model. 

Program and project details are provided below, organized by the investment areas.

1. Cloud Computing: Identifies technologies, practices, and procurement opportunities to 

enable secure, easy to use, on–demand, Federal cloud computing services that are 

efficient, cost-effective, and sustainable. The Cloud program includes projects that facilitate

and accelerate secure government-wide adoption of cloud solutions and others that offer 

cost savings to Federal agencies while promoting innovation, transparency, open 

government, and citizen engagement. 

2. Open Government and Transparency: Maintains and improves Data.gov, providing citizens,

businesses, state and local governments, and the media access to over 90,000 data 

collections (optimized from 445,000 individual datasets) originating from 180 agencies and 

sub-agencies. Using the data provided, the public has developed over 236 applications. 

Data.gov is the centerpiece of the global open democracy partnership, as described in the 

Administration’s Open Government U.S. National Action Plan (September 2011), and has 

been emulated by over 30 countries, along with many state and local governments, seeking 

to increase transparency and accountability, while fostering innovation. 

Descriptions of the Federal datasets, information on how to access the datasets, contact 

mechanisms, metadata information, and links to publicly accessible applications that 

leverage the datasets all enable valuable use of government data and drive development of 

innovative products and services. End users are provided with opportunities to provide 

information feedback and ratings. 

The Digital Analytics Program and Toolkit provides federal agencies with best practices, 

guidance, training and a no-cost automated tool to measure effectiveness and customer 

satisfaction of over 3,000 government websites. This solution enables effective, consistent 
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FCSF-15

government-wide measurement and analysis of Federal website effectiveness and is driving 

performance improvements in public-facing websites. 

3. Performance Dashboards: Performance dashboards enable the public, Congress, Federal 

executives, executive branch leadership, and others to monitor progress being made by the 

Government in cutting waste, streamlining government, and improving performance. 

Performance.gov provides a central platform for the federal government to describe and 

track progress toward achieving cross-agency priority goals. These include goals to deliver 

world-class customer services to citizens, drive efficiencies in information technology 

delivery, leverage strategic sourcing and promote shared services to reduce costs, establish 

cost and quality benchmarks for core operational activities, and improve efforts to reduce 

waste. In accordance with the GPRA Modernization Act, tracking is included for agency 

strategic goals, objectives, and priorities. The additional effort is to provide more access 

and granularity of information and frequency of reporting.
U.S. General Services Administration

Federal Citizen Services Fund

FCSF-16

Office of Information Technology Services Solutions

The Office of Information Technology Services Solutions (OITSS) supports OCSIT initiatives by 

maintaining a common, shared, on demand, agile, cost-effective, open standard infrastructure to 

support the mission of OCSIT. It provides support for infrastructure, mobile, collaboration, 

search and analytics, open source products, and data and content delivery, while ensuring 

compliance with Federal policies, procedures, practices, and standards applicable to E-Gov 

activities. 

OITSS contributes to reducing investment and maintenance costs, delivers improved services to 

citizens, reduces OCSIT risks and complexities, and provides a platform for development of 

emerging technologies and solutions. These hosting services are consolidated to provide the 

most efficient cost model for supporting all of the OCSIT programs.
U.S. General Services Administration

Federal Citizen Services Fund

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U.S. General Services Administration

ACQUISITION SERVICES FUND

Fiscal Year 2015 Budget Request

CONTENTS

Program Financing........................................................................................................................................2

Explanation of Changes ................................................................................................................................4

FY 2014 Operating Plan and FY 2015 Budget Estimate ..............................................................................5

Results of Operations by Program (Dollars in Thousands) ..........................................................................7

Obligations by Object Classification............................................................................................................10

FTE by Portfolio, Initiative, and Integrator Office ........................................................................................11

Federal Acquisition Service.........................................................................................................................12

Assisted Acquisition Services Portfolio ...................................................................................................12

General Supplies and Services Portfolio ................................................................................................13

Integrated Technology Services Portfolio ...............................................................................................16

Travel, Motor Vehicle and Card Services Portfolio .................................................................................18

Integrated Award Environment Portfolio .................................................................................................20

Digital Services Pilot ...............................................................................................................................21

FAS Integrators .......................................................................................................................................22
U.S. General Services Administration

Acquisition Services Fund

ASF-2

Program Financing 

The Acquisition Services Fund (ASF) is a full cost recovery revolving fund that finances 

operations of the Federal Acquisition Service (FAS). The ASF provides for the acquisition of 

information technology solutions, telecommunications, motor vehicles, supplies and a wide 

range of goods and services for federal agencies. This fund recovers all costs through fees 

charged to federal agencies for services rendered and commodities provided. 

The ASF is authorized by section 321 of title 40, United States Code, which requires the 

Administrator to establish rates to be charged to agencies receiving services that: (1) fully 

recover costs and (2) provide for the long-term capital requirements of the ASF. The ASF is 

authorized to retain earnings to cover the cost of replacing fleet vehicles (Replacement Cost 

Pricing), maintaining supply inventories adequate for customer needs, and funding investments 

specified by the Cost and Capital Plan. 

The ASF is organized around five major business portfolios and one pilot that deliver solutions 

to customer agencies: 

Assisted Acquisition Services (AAS) — focuses on service delivery and assisting customers in 

making informed procurement decisions and serving as a center of acquisition excellence for 

the federal community. AAS complements the programs of the Integrated Technology Services 

and General Supplies and Services portfolios by providing acquisition, technical, and project 

management services that assist agencies in acquiring and deploying information technology 

and professional services solutions at the best value for taxpayer dollars.

General Supplies and Services (GSS) — provides customer agencies a wide range of general 

products such as furniture, office supplies, and hardware products. GSS centralizes 

acquisitions on behalf of the Federal Government to strategically procure goods and services at 

reduced costs, while ensuring regulatory compliance for customer procurements. This portfolio 

also provides personal property disposal services to customer agencies. 

Integrated Technology Services (ITS) — provides customer agencies with information 

technology (IT) and telecommunications products and services. ITS provides its services 

through multiple channels including its Network Services program, Regional 

Telecommunications program, IT Schedule 70, and Government-wide Acquisition Contracts 
U.S. General Services Administration

Acquisition Services Fund

ASF-3

(GWACs). ITS operations aggregate and leverage the Federal Government's buying power to 

obtain a wide range of information technology and telecommunications products and services at 

significant savings for customer agencies.

Travel, Motor Vehicle and Card Services (TMVCS) — provides customer agencies with a broad 

scope of services that include travel and relocation, freight management, motor vehicle 

acquisition, fleet management, and charge card services. TMVCS operations aggregate and 

leverage the Federal Government's buying power to obtain a wide range of products and 

services at significant savings for customer agencies.

Integrated Award Environment (IAE) — provides an environment that realizes and maximizes 

the power of federal procurement standards through a mix of agency fee-for-service 

contributions and ASF funding. IAE's mission is to work with the federal acquisition workforce 

and its business partners to standardize, integrate, and streamline the federal procurement 

process through electronic means while increasing transparency and ensuring compliance 

with all applicable Federal award regulations.

Digital Services Pilot — works with agencies to provide solutions designed to improve customer 

service at reduced costs. To facilitate this mission, this initiative will leverage top talent from the 

private sector, non-profits, and academia, and pair them with top innovators in government to 

collaborate during six to twelve month tours of duty.
U.S. General Services Administration

Acquisition Services Fund

ASF-4

Explanation of Changes 

(Dollars in Thousands) 

$ FTE Obligations

2014 Request.................................................. 3,276 $ 11,527,573

2015 Request.................................................. 3,295 $ 11,633,955

Net Change........................................... 19 $ 106,382

 FTE Obligations

Maintaining Current Levels: 

FY 2015 Pay Increase (1.0% Effective January 2015) $ 2,966 

Inflation on Goods and Services Sold (1.7%) $ 151,625

Subtotal, Maintaining Current Levels................ - $ 154,591

Program Increases

Increased Business Volume through FAS Offerings $ 88,362 

Increased FTE to Support Business Volume Growth 117 $ 15,672

Subtotal, Program Increases................ 117 $ 104,035

Cuts, Consolidations, Savings Initiatives

Reduced Fleet Related Expenses $ (61,420)

Reduced Capital Investments $ (49,750)

Reduced Other Operational Support Costs $ (19,224)

Reduced FTE & Contractual Support due to Supply 

Transformation (98) $ (12,913)

Reduced Transportation Costs $ (8,936)

Subtotal, Terminations, Reductions and Savings...... (98) $ (152,244)

 Net Change................................................ 19 $ 106,382
U.S. General Services Administration

Acquisition Services Fund

ASF-5

FY 2014 Operating Plan and FY 2015 Budget Estimate 

The FY 2014 operating plan and FY 2015 budget reflect FAS’s concerted effort to increase 

savings government-wide by increasing the utilization of FAS’s current offerings, launching 

several new offerings, and achieving internal operational efficiencies. Total revenues generated 

through FAS offerings are expected to increase in FY 2014 and FY 2015 due to the addition of 

several new procurement vehicles and services and the increased utilization of GSA’s current 

offerings. At the same time, as FAS produces operational efficiencies through the reduction of 

contractual services and equipment costs. 

In FY 2014 and FY 2015, total ASF revenue is projected to be at $10.6 billion and $10.8 billion

respectively, while cost of goods is projected to be at $8.4 billion and $8.6 billion. This revenue 

is generated from across FAS’s five different portfolios and one initiative that help the federal 

government acquire the goods and services it needs to function. In FY 2014 and FY2015, the 

ASF expects to generate net operating results of approximately -$65.5 million and -$112.9 

million, respectively, as FAS has identified new business investment opportunities and internal 

improvements requiring reserve funding. These net operating results represent -0.62% and 

-1.05% of annual revenues and represent a full-cost recovery plan with an adequate buffer to 

mitigate the risk of lower than projected business volumes.

The FY 2015 budget request includes $104,035 thousand in increases and -$152,244 

thousand in reductions: 

● $88,362 thousand in business volume, primarily from increased acquisition support

services and IT commodity sales through FAS’s Reverse Auctions Platform.

● $15,672 thousand to fund additional FTE to grow business volume and increase customer 

support. 

● -$61,420 thousand in fleet related expenses and outlays for vehicle purchases, petroleum, 

maintenance and repair.

● -$49,750 thousand in savings from management support contract reductions.
U.S. General Services Administration

Acquisition Services Fund

ASF-6

● -$19,224 thousand to reduce operational support expenses including: communications, 

printing, rent, travel, and other miscellaneous costs. 

● -$12,913 thousand to reduce FTE and contractual labor support to operate supply 

distribution centers. These reductions support FAS’s movement to a Supplier Direct 

Delivery business model for Supply Operations, creating efficiencies by reducing the need to 

store physical inventory and allowing FAS to pass on additional savings to customers.

● -$8,936 thousand in transportation costs for the shipment of goods to FAS customers. 
U.S. General Services Administration

Acquisition Services Fund

ASF-7

Results of Operations by Program (Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Estimate1

FY 2015

Request1

1. Assisted Acquisition Services (AAS)

Revenue $ 4,643,445 $ 5,069,642 $ 5,220,008

Acquisition Training Fund

Cost of Goods Sold 4,489,856 4,904,142 5,051,570

Gross Margin 153,589 165,500 168,438

Cost of Operations

Program Expenses 90,527 90,399 96,619

Corporate Overhead 19,605 36,440 37,383

Other Cost of Operations 3,307 2,177 3,192

Total Cost of Operations 113,440 129,017 137,194

Operating Results Before Reserves 40,149 36,483 31,243

Reserve Expenses 13,363 14,984 7,793

Extraordinary Adjustment

Net Operating Results $ 26,786 $ 21,499 $ 23,451

2. General Supplies and Services (GSS)

Revenue $1,366,044 $1,443,235 $1,415,533

Acquisition Training Fund (8,378) (7,593) (7,624)

Cost of Goods Sold 946,503 1,047,158 1,048,199

Gross Margin 411,163 388,485 359,710

Cost of Operations

Program Expenses 362,922 280,432 257,024

Corporate Overhead 67,161 91,308 86,212

Other Cost of Operations 8,876 15,291 13,557

Reduced Other Operational Support Costs 438,958 387,031 356,794

Operating Results Before Reserves (27,795) 1,454 2,916

Reserve Expenses 11,298 60,888 83,899

Extraordinary Adjustment

Net Operating Results $ (39,093) $ (59,434) $ (80,983)

3. Integrated Technology Services (ITS)

Revenue $ 1,530,326 $ 1,588,174 $ 1,615,109

Acquisition Training Fund (6,288) (7,371) (7,689)

Cost of Goods Sold 1,227,796 1,258,270 1,273,128

Gross Margin 296,242 322,533 334,292

Cost of Operations

Program Expenses 211,941 201,321 194,990

Corporate Overhead 43,383 75,305 72,613

Other Cost of Operations (8,778) 6,059 5,258

Total Cost of Operations 246,546 282,684 272,860

Operating Results Before Reserves 49,696 39,850 61,432

Reserve Expenses 17,843 29,235 19,728

Extraordinary Adjustment

Net Operating Results $ 31,853 $ 10,615 $ 41,704
U.S. General Services Administration

Acquisition Services Fund

ASF-8

Notes: 

1 The Reserve Expense amounts for FY 2014 and FY 2015 reflect the FY 2013 Cost & Capital Plan. The FY 2014 Cost & Capital 

Plan is still under review. 

2

TMVCS Portfolio Revenue and Cost of Goods Sold include $735.5 million, $929.7 million, and $874.1 million in intra-GSA sales of 

vehicles,that GSA Fleet purchased/plans to purchase from GSA Automotive in FY 2013, FY 2014, and FY 2015, respectively, for its 

leasing program to federal agencies. 

3

TMVCS reserve expenses include Replacement Cost Pricing (RCP), which is a component of current

year fees and is used to cover the cost of inflation on vehicles purchased by GSA Fleet. 

4

At the end of FY 2013, IAE was transferred to FAS from GSA’s Office of Governmentwide Policy so its revenue, total cost of 

operations, and net operating results are not included in the FAS total. Starting in FY 2014, IAE program management is under FAS 

and is included in the FAS total

4. Travel, Motor Vehicle and Card Services (TMVCS)

Revenue 2$ 2,363,072 $ 2,391,594 $ 2,429,217

Acquisition Training Fund (967) (990) (1,005)

Cost of Goods Sold 2 1,152,947 2,390,604 2,428,211

Gross Margin 1,209,158 1,255,604 1,234,211

Cost of Operations

Program Expenses 568,793 608,974 629,533

Corporate Overhead 36,145 56,241 56,130

Other Cost of Operations 489,292 495,700 508,297

Total Cost of Operations 1,094,230 1,160,914 1,193,961

Operating Results Before Reserves 114,928 94,690 40,251

Reserve Expenses 3 32,025 92,080 94,224

Extraordinary Adjustment

Net Operating Results $ 82,903 $ 2,610 $ (53,973)

5. Integrated Award Environment (IAE) 4

Revenue $ 53,630 $ 62,500 $ 62,500

Total Cost of Operations 49,900 72,257 74,607

Reserve Expenses 25,563 25,320

Net Operating Results $ 3,731 $ (35,320) $ (37,427)

6. Digital Services Pilot 5

Revenue $ 5,975 $ 7,170

Total Cost of Operations 10,772 12,399

Reserve Expenses 665 454

Net Operating Results $ (5,462) $ (5,683)

7. Total ASF

Revenue $ 9,902,887 $ 10,561,119 $ 10,749,536

Acquisition Training Fund (15,633) (15,953) (16,318)

Cost of Goods Sold 7,817,102 8,408,065 8,632,689

Gross Margin 2,070,152 2,137,101 2,100,529

Total Cost of Operations 1,893,174 1,979,178 1,982,022

Operating Results Before Reserves 176,978 157,924 118,507

Reserve Expenses 74,529 223,415 231,418

Extraordinary Adjustment - - -

Net Operating Results $ 102,449 $ (65,491) $ (112,911)

Net Outlays (325) - -

Full-Time Equivalents (FTE) 3,544 3,276 3,295
U.S. General Services Administration

Acquisition Services Fund

ASF-9

5 The Digital Services Pilot is a new initiative starting in FY 2014.
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Acquisition Services Fund

ASF-10

Obligations by Object Classification

ACQUISITION SERVICES FUND

Obligations by Object Class

$(thousands)

11.1 Full-time permanent 331,063 306,206 315,569

11.3 Other than permanent 1,696 1,434 1,225

11.5 Other personnel compensation 4,802 3,562 3,204

11.9 Total personnel compensation 337,561 311,202 319,998

12.1 Civilian personnel benefits 94,876 84,419 86,894

13.0 Benefits for former personnel 2,392 2,526 648

21.0 Travel and transportation of persons 3,174 5,877 5,812

22.0 Transportation of things 66,117 29,187 20,251

23.1 Rental payments to GSA 40,894 35,223 37,744

23.3 Communications, utilities, and miscellaneous charges 1,247,105 1,160,173 1,156,843

24.0 Printing and reproduction 1,178 3,060 3,189

25.1 Advisory and assistance services 4,568,513 5,803,077 5,912,971

25.2 Other good and services from non-Federal sources 5,518 6,124 7,337

25.3 Other purchases of goods and services from Federal sources 204,163 264,637 252,055

25.7 Operations and maintenance of equipment 191,369 122,532 124,800

26.0 Supplies and materials 2,284,253 2,580,340 2,633,960

31.0 Equipment 715,038 1,119,195 1,071,455

42.0 Insurance claims and indemnities 10,962 0 0

Total new obligations 9,773,111 11,527,573 11,633,955

Civilian full-time equivalent employment 3,544 3,276 3,295

2013 Actual 2014 Estimate 2015 Request
U.S. General Services Administration

Acquisition Services Fund

ASF-11

FTE by Portfolio, Initiative, and Integrator Office

Portfolios & Initiatives

Assisted Acquisition Services 268 (5) 284 316

General Supplies Services 973 (6) 915 819

Integrated Technology Services 561 (12) 587 612

Travel, Motor Vehicle, and Card Services 650 (5) 670 695

Integrated Award Environment - - 34 34

Digital Services Pilot - - 54 64

Integrator 

Office of the Commissioner 22 - 18 21

Regional Commissioners 163 (49) 105 115

Office of Administration 48 (48) - -

Office of Strategy Management 23 - 22 24

Office of the Controller 99 (99) - -

Office of Customer Accounts and Research 244 - 249 247

Office of the FAS CIO 158 (158) - -

Office of Acquisition Management 261 - 257 261

Regional Acquisition Operations 73 (2) 82 88

Total FAS FTE 3,544 (384) 3,276 3,295

FY13 Actuals Changes due to 

Consolidation

FY14 Plan 

Post-Consolidation

FY15 Plan 

Post-Consolidation
U.S. General Services Administration

Acquisition Services Fund

ASF-12

Federal Acquisition Service 

The mission of the Federal Acquisition Service (FAS) is: 

Making agencies more effective at what they do by providing expertise, management 

and optimal acquisition solutions.

The FAS mission reflects a commitment to delivering service, innovation, and value through 

efficient operations, market expertise, and intimate relationships with both our customers, 

federal agencies, and our vendors, private sector companies. FAS accomplishes its mission by 

providing solutions to customer agencies through five major business portfolios and one 

initiative, which assist agencies to buy smarter leading to administrative savings throughout the 

government. When customers come to FAS for acquisition support, products, and services, 

FAS uses its expertise to help agencies minimize the administrative costs associated with 

acquisitions. This allows customer agencies to direct more of their resources toward mission 

critical activities. Starting in FY 2014, FAS will partner with PBS as a part of GSA’s Total 

Workplace Solution to help federal agencies minimize the upfront capital requirements when 

transitioning into modern, mobile-work friendly spaces, while reducing agencies’ rental space 

footprint. Descriptions of each portfolio and initiative and how they promote buying smarter, 

strategic sourcing, and increased administrative savings across the government are included 

below.

Assisted Acquisition Services Portfolio 

The Assisted Acquisition Services (AAS) portfolio offers value-added, customized acquisition, 

project management, and financial management services for large and/or complex IT and 

professional services solutions. In FY 2013, AAS obligated over $4 billion in contract awards for 

its customer agencies. AAS has contracting, project management, and financial management 

professionals located throughout the world allowing the portfolio to provide federal agencies 

direct assistance with these complex solutions. This allows AAS to ensure that customer 

requirements are met on time, within budget, and at reduced risk resulting in mission success 

for AAS’s customer agencies. AAS’s expertise in acquisitions generates cost savings to 

customer agencies and taxpayers on each engagement at the task order level. By generating 

cost savings for customer agencies, AAS enables them to focus more of their resources on the 
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performance of their core mission instead of diverting resources on their own acquisition and 

project management personnel. 

Operations within the AAS portfolio include the following business lines:

● The Center for Federal Systems Integration and Management (FEDSIM) — delivers 

acquisition management, project management, and financial management services to assist 

federal agencies in using technology solutions on a national and global basis. 

● Regional IT Solutions — consists of nine programs located across the country that 

provide information technology solutions including acquisition management, project 

management, and financial services to federal agencies locally, within a given geographic 

region. 

In FY 2014 and FY 2015, AAS will continue to work toward its goal of being recognized as the 

first choice in leading successful acquisitions and helping promote more transparent and 

sustainable acquisitions across the Federal Government. Over the last few years, AAS has 

been able to increase the amount of support it provides customer agencies and is planning to 

increase FTE levels in both FEDSIM and Regional IT Solutions to continue that growing level of 

support. Additionally, FAS has discovered an underserved need for facilities maintenance 

acquisition support throughout the government, so AAS will pilot a stand-alone facilities 

maintenance program to meet that need. AAS continues to improve operations through a series 

of strategically targeted efforts in the areas of strategic planning, training, data and reporting, 

acquisition and financial compliance, and workforce virtualization. 

General Supplies and Services Portfolio 

The General Supplies and Services (GSS) portfolio leverages the Federal Government’s 

economies of scale to help federal agencies procure non-IT products and services at reduced 

prices, with fast delivery times, and in compliance with the Federal Acquisition Regulations. By 

establishing contract vehicles that can be used government-wide, GSS allows federal agencies 

to avoid contract duplication eliminating the need for other agencies to develop their own 

contract vehicles. This portfolio also provides personal property disposal and non-IT 

professional services to customer agencies.
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Operations within the GSS portfolio include the following business lines:

● Supply Operations (Global Supply) — provides federal agencies with access to 

competitively priced products and global supply chain services, including contracting, order 

processing, warehousing, distribution, and transportation. These activities are supported 

through GSA-managed distribution facilities and direct vendor distribution channels. In FY 

2014 and FY 2015, Supply Operations is focusing on modernizing its supply chain and 

improving internal operations so that it will ultimately be able to provide customer agencies 

with savings through reduced prices. Global Supply’s past practices have relied significantly 

on acquiring products from industry and storing them in resource-intensive distribution 

centers and forward stocking locations, including retail stores. With advances in business 

practices and technology, there are now more efficient, strategic ways to serve customer 

agencies. The new business model will utilize Strategic Partner Delivery (SPD) for 

commercially available items and will transition stores to a fourth party logistics (4PL) 

solution allowing Global Supply to efficiently meet customer demands for competitively 

priced products and faster delivery. As a result of implementing this new business model, 

Global Supply is working to reduce its distribution center footprint. The reduced footprint will 

allow Global Supply to realize an estimated $12.9 million in personnel and contractual 

service savings as less support is needed to manage warehouse operations as warehouse 

operations are discontinued in FY 2015.

● Acquisition Operations — provides federal agencies with direct access to vendors’ 

goods and services through Multiple-Award Schedule contracts; furniture through the 

Integrated Workplace Acquisition Center (IWAC); and emergency preparedness and 

response recovery contracting through the Center for Innovative Acquisition Development 

(CIAD). Acquisition Operations’ CIAD program assists the Federal Emergency Management 

Agency respond to natural disasters and other emergencies by procuring goods and 

services necessary for emergency response support. In FY 2012, Acquisition Operations 

procured $30 million worth of goods and services for emergency response support 

including: 300,000 bottles of water, 100,000 hygiene kits, 877 emergency transportation 

shipments, and 63,000 lodging rooms. 
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In FY 2014 and FY 2015, Acquisition Operations will focus on expanding its strategic 

sourcing efforts to include new commodity classes by developing new Federal Strategic 

Sourcing Initiative (FSSI) solutions. Acquisition Operations currently has two FSSI 

offerings, Office Supplies and Print Management, allowing government agencies to 

leverage the government’s purchasing power, reduce their costs, and improve their overall 

performance. GSS is in the process of developing two new FSSI solutions, Janitorial and 

Sanitation products (JanSan) and Maintenance, Repair, and Operations Supplies (MRO) 

Blanket Purchase Agreements. These offerings will continue to leverage the growing FSSI 

infrastructure by streamlining the acquisition and management of these commodities thus 

driving competition and economies of scale for both agencies and industry partners. Under 

FSSI, GSS will continue to establish innovative solutions that capture savings and improve 

the management of the target commodity categories. 

Acquisition Operations will also be finalizing the development and deployment of One 

Acquisition Solution for Integrated Services (OASIS), a next generation, enterprise-wide 

contracting vehicle that will ensure agencies obtain best-value solutions for complex 

professional service requirements. This vehicle will be designed to address federal 

agencies' need for professional service requirements that:

● span multiple professional service disciplines;

● involve significant IT components but aren't IT requirements; 

● require flexibility for all contract type task orders and other direct costs at the task 

order level; 

● are difficult to specify or quantify prior to award; 

● and create an environment of elevated risk due to their unanticipated nature. 

By providing this solution to customer agencies, Acquisition Operations will be meeting an 

underserved need in the federal marketplace. 

Acquisition Operation’s IWAC program will be coordinating with PBS to lease furniture to 

federal agencies through GSA’s new Total Workplace solution. GSA is helping agencies 

transition into modern, mobile work environments and IWAC is helping agencies furnish 

their new space with mobile-work friendly office furniture by minimizing the upfront capital 

needed, while reducing agencies’ rental space footprint. 
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● Personal Property Management —provides savings to federal agencies through its sales 

program. Personal property sales are conducted on behalf of agencies that have excess 

personal property that they no longer need and the resulting proceeds are reimbursed to the 

customer agency. In FY 2013, the sales program reimbursed $89 million to customer 

agencies after selling excess federal property to the public. In FY 2014 and FY 2015, 

Personal Property Management will continue to help other federal agencies sell excess 

personal property to the benefit of GSA’s customer agencies and to taxpayers.

Integrated Technology Services Portfolio 

The Integrated Technology Services (ITS) portfolio provides government organizations with 

access to the best-value IT and telecommunications products, services, and solutions. ITS’s 

programs are designed to expedite the acquisition cycle and harness the government’s buying 

power to help the government obtain and save money on the full range of end-to-end IT and 

telecommunications products and services it needs. This removes the need for other 

government agencies to duplicate acquisition efforts, allowing customers to focus resources on 

their core missions. 

Operations within this portfolio include the following business lines:

● Network Services — offers comprehensive, best value telecommunications products and 

services to federal agencies by providing them access to new technologies, innovative 

industry partners, and new ways to achieve a more efficient and effective government. By 

providing agencies with access to the best technology industry has to offer, Network 

Services allows agencies to operate in seamless, secure environments and focus their 

resources on accomplishing their core missions. The telecommunications products and 

services offered by Network Services range from managed Internet Protocol services; 

premises and network based IP; voice, data, and teleconferencing capabilities; satellite 

transport (bandwidth) and service; and other telecommunications products and services. 

● Multiple Award Schedule for IT (Schedule 70) — provides direct access to products and 

services from over 5,000 certified industry partners through an indefinite delivery/indefinite 

quantity (IDIQ) multiple award schedule. By establishing these contracts with industry 

partners, ITS is able to leverage the size of the Federal Government to attain better prices 

and simplify IT acquisitions for customer agencies. 
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● IT Commodity Buy — offers IT commodities at lower prices and provides easy ordering for 

federal, state and local government organizations through blanket purchase agreements 

(BPAs) off of IT Schedule 70. In FY 2014 and FY 2015, IT Commodity Buy will focus on 

increasing customer adoption of the newly launched Reverse Auctions Platform allowing 

customer agencies to purchase IT commodities at lower prices. By getting industry partners 

to compete against each other, customer agencies will be able to buy smarter and at 

reduced prices. The IT Commodity Buy Program will also be working with PBS to help 

agencies adopt a mobile work environment. Using the Commodity Buy program as the 

purchasing vehicle, the Total Workplace solution will lease IT assets to customer agencies 

that will minimize the upfront capital required of customer agencies, while reducing 

agencies’ rental space footprint.

● SmartBuy — allows government organizations to purchase a wide array of software and 

supporting services at lower prices by leveraging the government’s high demand for 

software solutions. SmaryBuy agreements feature the latest Department of Homeland 

Security and National Institute of Standards and Technology Security Content Automation 

Protocol validations and Office of Management and Budget standards. This allows federal 

agencies access to commercially available software that is compliant with federal IT 

standards at reduced costs. In FY 2012, the SmartBuy program achieved $680 million of 

cost avoidance for SmartBuy Blank Purchase Agreement users. 

● Government-Wide Acquisition Contracts (GWACs) — provides federal agencies with flexible 

access to customized IT solutions from a large, diverse pool of industry partners. One of 

ITS’s GWACs, Alliant, has a $50 billion program ceiling and a five-year base period with one 

five-year option. This contract vehicle and extended period allows customer agencies to 

strengthen the long-term planning of their large-scale program requirements. 

● Strategic Programs — includes the HSPD-12 program and the Federal Public Key 

Infrastructure program, which allow federal agencies to comply with federal IT security 

mandates.

In FY 2014 and FY 2015, ITS will focus on improving service delivery to customer agencies by 

aligning enterprise program core processes and systems across business lines and geographic 

regions. Another major focus will be to improve outreach to customer agencies to increase their 
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utilization of ITS’s acquisition vehicles, allowing customer agencies to put more resources 

toward achieving their core missions.

Travel, Motor Vehicle and Card Services Portfolio

The Travel, Motor Vehicle and Card Services (TMVCS) portfolio provides customer agencies 

with a broad scope of innovative and cost-efficient services that include travel and relocation 

services, freight management, motor vehicle acquisition, fleet management, and charge card 

services. 

Operations within this portfolio include:

● Motor Vehicle Management — provides vehicle acquisition services through the Automotive

program and vehicle leasing services through the Fleet program to the Federal Government. 

o The Automotive program is a mandatory source for federal agencies purchasing 

non-tactical vehicles. This allows the government to avoid additional overhead costs

associated with multiple vehicle acquisition programs and to purchase vehicles at an 

average price much lower than dealers’ invoice price. In FY 2013, the average 

negotiated discount was 18% below dealer invoice. Each year, Automotive 

procures approximately 40,000 vehicles for the Federal Government. Additionally, 

the Automotive program allows the Federal Government to meet sustainability goals 

by expanding the number of green vehicle offerings available each year; from FY 

2012 to FY 2013, Automotive’s green offerings increased by 72%. In FY 2014 and 

FY 2015, the Automotive program will continue to work toward helping agencies 

meet their sustainability goals by expanding the number of green vehicle offerings.

o The Fleet program provides full service leases for over 200,000 non-tactical 

vehicles to federal agencies each year. Fleet provides customer agencies with endto-end fleet management services including vehicle acquisition and disposal,

maintenance control and accident management, fuel and loss prevention services,

and a robust fleet management system that provides detailed and accurate data to 

efficiently manage the fleet. This relieves customers of all responsibility for the 

administrative, management, and functional responsibilities of total fleet 
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management, which allows agencies to focus valuable resources on the 

performance of their core mission. The vehicles are supported by the National 

Maintenance Control Center and the National Accident Management Center, which 

ensure preventive maintenance, repair, and accident management services are 

offered to customers at the best value. This prevents the Federal Government from 

incurring higher maintenance costs in the future. The program also provides a Fleet 

Card with each vehicle for the purchase of fuel and routine maintenance. A 

dedicated loss Prevention team also helps the program control costs by monitoring

waste, fraud, and abuse. In FY 2014 and FY 2015, Fleet will aggressively pursue 

agency-owned and commercial-lease consolidations with new and existing customer 

agencies. This will increase customer agency cost savings, while simultaneously 

allowing agencies to focus resources on their mission instead of on the professional 

fleet management services that GSA can provide efficiently and effectively. 

● Travel and Transportation — manages two programs offering a variety of services related to 

the travel of federal employees and the transportation of federally owned goods: the Center 

for Travel Management and the Center for Transportation Management. In FY 2014 and FY 

2015, both centers will focus on increasing the number of customer agencies using their 

services as well as upgrading their current offerings.

o The Center for Travel Management manages the City Pair Program, FedRooms 

lodging, travel agency services, and the GSA Management Information Service. The 

center’s E-Government Travel Service (ETS) provides web-based end-to-end travel 

management services that include travel planning, authorization, online booking, 

travel agency support, and reimbursement to customer agencies. In FY 2014 and FY 

2015, TMVCS will be transitioning customer agencies to its new ETS2 platform. The 

City Pair Program leverages the government’s buying power and negotiates 

discounted airfares with commercial airlines; in FY 2013, customer agencies used 

the City Pair Program to purchase over 5.2 million flights. The FedRooms lodging 

program is the first ever government-wide transient lodging program that allows 

federal employees to stay at over 13,000 properties globally. In FY 2013, FedRooms 

saw continued growth as utilization pushed close to 1.01 million room nights.

o The Center for Transportation Management provides three major services: 

multimodal freight, the Employee Relocation Resource Center, and the Domestic 
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Delivery Services (DDS2) program. DDS2 is a FSSI solution that provides 

significant discounts to the already low prices on GSA schedules for express and 

ground delivery services. In FY 2013, 71 federal agencies used DDS2 to achieve 

lower costs on their express and ground delivery needs.

● GSA SmartPay® —This program serves more than 350 federal agencies, organizations, 

and tribal governments by providing commercial charge card procurement and payment 

services. Agencies and government organizations spend $26 billion annually using GSA’s 

SmartPay charge cards. Due to the large volume of spending that goes through the 

SmartPay program, the program is able to get credit card companies to refund agencies a 

percentage of their purchases; in FY 2013, the SmartPay program generated $272 million in 

net refunds to support agency missions. In FY 2014 and FY 2015, TMVCS will work to 

increase the use of SmartPay by other agencies.

Integrated Award Environment Portfolio

The Integrated Award Environment (IAE) portfolio began as an e-Government Initiative of the 

President’s Management Council in FY 2001, and was stood up in FY 2002. Formerly the 

Integrated Acquisition Environment, it was renamed in FY 2013 to recognize its services not 

only to the acquisition community but also to the financial assistance (grants and loans) 

community. IAE’s governance body, the Award Committee for E-Government (ACE), provides 

strategic direction, while GSA serves as the IAE Managing Partner, managing the 

implementation of IAE.

IAE’s original mission was to standardize, integrate and streamline the federal procurement 

process, through electronic means, for the acquisition workforce and business partners, while 

increasing transparency and ensuring compliance with the Federal Acquisition Regulation 

(FAR). In FY 2008 that mission was expanded to embrace services to the financial assistance 

community as well.

Due to the need to meet new challenges, an “aggregation” strategy was established by the ACE 

in FY 2008 that focuses on both business services and data in the acquisition lifecycle. The 

strategy called for the migration of functions performed by the existing suite of nine IAE 

applications to a set of acquisition business services that will be implemented consistent with 

Service-Oriented Architecture concepts and technology. Utilizing a phased approach to this 
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migration, the new consolidated IAE program environment is called the System for Award 

Management (SAM).

In July 2012, SAM Phase 1 migrated three IAE systems onto the SAM platform. This phase 

included the capabilities found in the legacy IAE systems Central Contractor 

Registration/Federal Agency Registration (CCR/FedReg), Excluded Parties List System (EPLS) 

and the On-line Representations and Certifications Application (ORCA).

In FY 2013, the IAE Program transitioned from GSA’s Office of Government-wide Policy (OGP) 

to GSA’s Federal Acquisition Service (FAS). A restructured IAE Project Management Office 

(PMO) was created within FAS. The IAE PMO assessed the state of SAM Phase 1 and 

conducted an alternative analysis that was reviewed by OMB in a May 2013 TechStat review. 

The TechStat approved the alternative analysis’ recommended path forward with an 

environment consisting of Three Core With Application Programming Interface (API) Solution

(Entity Management, Pre-Award, and Post Award cores) and common services to ensure a 

consistent user experience. This new environment will address the remaining systems within 

IAE and rebuild SAM.

In FY 2014, IAE will be establishing data governance and models; defining the scope of the 

Entity Management core; defining infrastructure requirements; and building the User 

Acceptance Testing (UAT) environment and processes. The program will also be enhancing 

and sustaining SAM and other legacy IAE applications to include version releases, data reloads, 

and helpdesk services for all systems. In FY 2015, IAE will be transforming Entity Management; 

building and expanding the use of the data warehouse; and defining the Post-Award Core 

requirements and beginning the design of the core. Funding for these efforts in FY 2014 and FY 

2015 is from partner agency fee-for-service yearly contributions of $62.5 million, as well as 

GSA investment funding from the ASF to implement the Three Core With API Solution. 

Digital Services Pilot

The Digital Services Pilot works with agencies to provide solutions designed to improve 

customer service at reduced costs. To facilitate this mission, the pilot houses the Presidential 

Innovation Fellows (PIF’s), a program that pairs top innovators from the private sector, nonprofits, and academia, with top innovators in government to collaborate during six to twelve 

month tours of duty. Enabling central coordination of program functions for the Fellows 

increases the Government’s ability to identify Agencies’ common experiences and pain points 
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while adopting digital services, and to share knowledge and learning across prevalent 

government silos. As needs are identified through the Fellows’ work at agencies and in 

coordination with OMB’s Information Technology Oversight and Reform (ITOR) efforts, the 

Digital Services Pilot will prototype and develop tools and services that meet multiple agencies’ 

needs to increase the rate of Government innovation at reduced costs. 

FAS Integrators

Federal Acquisition Service’s (FAS) five integrator offices work together to support the business 

portfolios and provide solutions on organizational issues. Integrator office functions include 

maintaining FAS business processes and information technology systems, providing contracting 

support, building strategic customer relationships and supporting the FAS workforce.

GSA Consolidation Efforts – GSA’s consolidation efforts to centralize oversight and 

improve organizational effectiveness across GSA have been reflected in the budget for FY 

2014 and FY 2015. FAS’s Office of Administration and Office of the Controller moved under 

the GSA Office of Administrative Services, Office of Human Resource Management, and 

Office of the Chief Financial Officer, respectively, and funding for these groups moved entirely 

to GSA’s Working Capital Fund. The Office of the FAS Chief Information Officer and FAS’s 

Regional Commissioners have FTE and contract dollars that moved to GSA’s Working Capital 

Fund. Additionally, 79 FTE, whose primary duties involve financial, human resource, and 

emergency preparedness functions, from FAS’s various portfolio and integrator offices were

consolidated into staff offices funded by the Working Capital Fund. By consolidating and 

transitioning funding for these functions to the Working Capital Fund, GSA centralized

oversight over these roles and achieved organizational efficiencies across the entire agency. 

These costs are funded through GSA’s Working Capital Fund and recovered through 

reimbursements from FAS. 

Executive Direction (Q) – is composed of the Office of the Commissioner and the Regional 

Commissioners’ offices. The Office of the Commissioner is responsible for providing leadership 

and overall executive and program direction to ensure the mission and responsibilities of FAS 

are effectively carried out. In FY 2014 and FY 2015, the Office of the Commissioner will be 

focusing on:

Increasing its market share of value added support to customer agencies by deploying 

procurement spending category management, including increasing the number of FSSI 
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contracts offered by FAS and improving the business intelligence surrounding FAS’s 

current FSSI offerings to increase usage and savings government-wide; and 

Developing and deploying a Common Acquisition Platform set of eProcurement Tools 

and Systems.

There are 11 different Regional Commissioner’s offices, one in each of GSA’s regions. The 

regional commissioners are responsible for overseeing the performance of FAS’s operations 

and ensuring that FAS is meeting the acquisition needs of federal agencies in their regions.

Office of Customer Accounts and Research (QC) – conducts customer and market research 

along with customer outreach. QC provides customers with information about the full range of 

acquisition solutions that FAS offers. QC enables FAS to become a strategic partner that assists 

customer agencies in selecting the best value solutions for their needs. QC delivers value by 

providing an enterprise-wide representation of the value FAS provides to customer agencies.

Office of Strategy Management (QP) - oversees all aspects of FAS strategic planning, 

process improvement, and strategic communications efforts. QP’s comprehensive approach 

ensures FAS continues to achieve business excellence by connecting people, ideas, and 

strategies. QP delivers value by developing and implementing FAS strategy, ensuring all of FAS 

is working toward a common mission and vision. QP also houses the Program Management 

Offices (PMOs) for FSSI and category management.

Office of Acquisition Management (QV) – is responsible for establishing the standards and 

framework for managing FAS’ acquisition workforce in accordance with policy established by 

the GSA Chief Acquisition Officer. QV ensures that FAS activities are fully compliant with all 

laws, regulations, and policies and that operating practices are consistent across business lines. 

QV adds value by its dedication to contract integrity and its role in facilitating a consistently 

positive customer experience.

Office of Regional Acquisition Operations (QZ) – is FAS’s contracting arm that supports the 

acquisition needs of the client agencies that do business with the Assisted Acquisition Services 

and Integrated Technology Services portfolios. By providing this full contracting support, QZ is 

able to maximize competition, lessen lead times, and reduce procurement costs for both 

government and industry.
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WORKING CAPITAL FUND

Fiscal Year 2015 Budget Request

CONTENTS

Program Description .....................................................................................................................................2

Amounts Available for Obligation..................................................................................................................4

Explanation of Changes ................................................................................................................................5

Working Capital Fund by Staff Offices ..........................................................................................................6

Working Capital Fund Total Authority ...........................................................................................................7

Description of WCF Services by Office.........................................................................................................8

FY 2014 and FY 2015 GSA Working Capital Fund Bill...............................................................................25
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Working Capital Fund Overview

The FY 2015 budget proposes a total of $666 million and 2,319 FTE for the GSA Working 

Capital Fund (WCF), a reduction of $39 million (5.6 percent) from the FY 2014 budget. The 

reduction is a result of the continued multi-year effort of consolidating resources and operating 

with greater efficiency to provide internal support services at reduced costs to customers. This 

consolidation, referred to as the “CxO” consolidation, is the result of an agency-wide top to 

bottom review of agency operations which identified the need for streamlined accountability and 

efficiency in GSA’s administrative functions such as human resources and information 

technology.

GSA is focused on reducing administrative costs, improving oversight and strengthening internal 

controls to drive efficiency in our operations. The Agency began to employ “zero-based” 

budgeting practices in the FY 2015 budget process to allocate and reduce travel, information 

management infrastructure, management support contracts and employees based on agency 

priorities. 

As GSA continues to transform and streamline the consolidated organizations, further 

reductions are likely to be proposed. These reductions will occur as GSA continues to identify 

savings through business process re-engineering and other actions aimed at increasing the 

efficiency of internal operations that support GSA’s mission.

Program Description

The WCF is a full-cost recovery revolving fund that finances administrative support services to 

GSA and other Federal organizations, including small agencies and commissions. The WCF is 

the mechanism that GSA uses to consolidate, provide and improve service delivery of 

administrative support functions to all GSA programs. These reimbursable services include 

information technology management, budget and financial management, payroll, legal advice 

and services, human resources, equal employment opportunity services, oversight of GSA 

contracting activities, emergency planning and response, and oversight of facilities management 

and other administrative services. This account also funds liaison activities with the U.S. Small 

Business Administration to ensure that small and disadvantaged businesses receive a fair share 
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of the agency’s business.

In the restructured WCF, GSA has grouped reimbursable activities into three types of services: 

Shared Services, Selected Services, and External Services.

Shared Services: WCF activity managers provide or coordinate delivery of common services 

to internal GSA offices. The benefits and cost of providing the WCF activity is tangible and is 

directly linked to the office’s use of services or products. These WCF activities are reimbursed 

for the provision of services to ensure full cost recovery. The WCF allows GSA to achieve 

economies of scale in providing these services to both internal customers and other customer 

agencies. Examples of services include: GSA Rent, IT and telecommunication services, 

human resource services, procurement operations, facilities management, acquisition policy, 

legal services, and financial management services. GSA offices may not cancel or opt out of 

paying for these services.

Selected Services: WCF activity managers may offer additional services to internal GSA 

offices. The services are specific to individual GSA offices and are documented in Intra-Agency 

Agreements (IAAs). Internal GSA offices may cancel services based on the terms and 

conditions negotiated in the IAAs. Examples include specific National Archives and Records 

Administration (NARA) space and IT circuits to support European operations.

External Services: WCF activity managers provide or coordinate delivery of specific services 

to other Federal organizations, including small agencies and commissions. These WCF 

activities are reimbursed for the provision of services, and characteristics typical of a business. 

The costs for providing the services are reimbursed by billing the external Federal customers for 

the provision of goods and services at rates that are approved by GSA’s Chief Financial Officer 

and reviewed by customers. Examples of services provided include: human resource services, 

IT and telecommunication services, administrative support for home-state/district offices for the 

Congress, and financial management services.

In addition, GSA transfers unobligated balances from its expired appropriated accounts into the 

Major Equipment Acquisition and Development activity of the WCF. Upon Congressional 

approval, the Major Equipment Acquisition and Development activity may be utilized for agency-
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wide investments to implement the Chief Financial Officers Act of 1990, such as: acquisition of 

capital equipment, automated data processing systems and financial and management 

information systems. 

Amounts Available for Obligation

(Dollars in Thousands)

1/ In FY 2013, Selected Services revenues were less than obligations because cost allocation methodology was adjusted during the midyear; therefore, net 

outlays increased by uncollected amount of $12,164 thousands.

2/ Other Reimbursable reflects obligations for the Fair Labor Standards Act Payment and GSA’s Management Councils payment. 

3/ Shared & Selected Services include carryover obligations.

 4/ FY 2014 and FY 2015 amounts reflect the full cost of consolidation compared to FY 2013, when consolidated staff continued to be paid from the 

Federal Buildings Fund (FBF) and Acquisition Services Fund (ASF).

(Dollars in Thousands) FY 2013 

Actual 

 FY 2014 

Current 

 FY 2015 

Request 

 FY 2014/2015 

Change 

Unobligated Balances:

Carry forward 128,169 96,404 78,769 (17,635)

Recoveries from prior year balances 6,553

Transfers (net) 2,759

Major Equipment Acquisition and 

Development [44,770] [41,441] [32,496] [8,945]

Subtotal, Unobligated Balances 137,481 96,404 78,769 (17,635)

Revenue:

Operating Programs:

Shared Services 414,625 467,234 411,460 (55,774)

Selected Services 1 / 7,047 204,129 219,747 15,618

External Services 15,387 16,116 16,083 (33)

Subtotal, Revenue 437,059 687,479 647,290 (40,189)

Total Resources Available 574,540 783,883 726,059 (57,824)

Obligations:

Operating Programs:

Other Internal Reimbursable 2 / 1,854 - - -

Major Equipment Acquisition and 

Development 5,958 8,945 13,970 5,025

Shared Services 3 / 435,727 475,924 415,829 (60,095)

Selected Services 3 / 19,211 204,129 219,747 15,618

External Services 15,387 16,116 16,083 (33)

Subtotal, Obligations 4 / 478,136 705,114 665,629 (39,485)

Net Outlays 22,019 12,450 59,266 46,816

Total Employment (FTE) 1,204 2,412 2,319 (93)
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Explanation of Changes

(Dollars in Thousands)

FTE $(000) FTE $(000) FTE $(000) FTE $(000) FTE $(000)

FY 2014 Congressional Justification 2,200 624,860 45 30,314 40 21,100 - 30,182 2,285 706,456

FY 2015 Working Capital Fund Request 2,212 415,829 76 219,747 31 16,083 - 13,970 2,319 665,629

Net Change 12 (209,031) 31 189,433 (9) (5,017) - (16,212) 34 (40,827)

FTE $(000) FTE $(000) FTE $(000) FTE $(000) FTE $(000)

FY 2014 Congressional Justification 2,200 624,860 45 30,314 40 21,100 - 30,182 2,285 706,456

 Carryover true-up - - - - - - - (21,237) - (21,237)

 CFO CxO Consolidation 162 18,273 - 162 18,273

 CIO CxO Consolidation (45) 7,307 - (45) 7,307

 OHRM CxO Consolidation 11 1,718 - 11 1,718

 OAS CxO Consolidation 20 9,870 - 20 9,870

 Reduced WCF external programs (10) (5,274) - (10) (5,274)

 Shared/Selected Services true-up (4) (188,352) 4 173,815 - (14,537)

 OGC FTE increase for workload 5 340 - 5 340

 OGP FTE reduction (3) (2,783) - (3) (2,783)

 OCR FTE reduction (2) (478) - (2) (478)

 OMA FTE reduction (13) (3,150) - (13) (3,150)

 OMA external support 2 290 - 2 290

 Rent increase 1800 F St 6,019 - 6,019

 OHRM divesture of CHRIS 2,300 - - 2,300

 FY 2014 Current Services Level 2,331 475,924 49 204,129 32 16,116 - 8,945 2,412 705,114

 Decreases 

 CFO CxO Consolidation (77) (9,133) (77) (9,133)

 CIO CxO Consolidation - (23,334) - (23,334)

 OHRM CxO Consolidation (5) (12,625) (5) (12,625)

 OAS CxO Consolidation (7) (3,522) (7) (3,522)

 ATB SSO budget reduction (3) (3,581) (3) (3,581)

 Non-recur Increase Reductions - 

(Bannister Move) (5,600) - (5,600)

 Non-recur Increase Reductions - 

(Divesture of CHRIS) - (2,300) - (2,300)

 Reduction of External service level (1) (33) (1) (33)

 Reduction of Selected service level 15,618 - 15,618

 - -

 Subtotal, Decreases (92) (60,095) - 15,618 (1) (33) - - (93) (44,510)

 - -

 Increases - -

 Increase Major Acquisition & 

Development 5,025 - 5,025

 Increase of External authority 

 - -

 Subtotal, Increases - - - - - - - 5,025 - 5,025

 - -

FY 2015 Working Capital Fund Request 2,239 415,829 49 219,747 31 16,083 - 13,970 2,319 665,629

Shared Selected External

Major Equipment 

Acquisition & 

Development Total

Shared Selected External

Major Equipment 

Acquisition & 

Development Total
U.S. General Services Administration

Working Capital Fund 

WCF-6

Working Capital Fund by Staff Offices

(Dollars in Thousands)

1/ Other Reimbursable reflects obligations for the Fair Labor Standards Act Payment and GSA’s Management Councils payment.

FTE Actual FTE Current FTE Request

Chief Information Officer 209 202,140 565 337,928 565 314,421

Chief Financial Officer 454 104,582 932 126,277 855 118,294

Office of Human Resources Management 213 71,928 398 96,463 393 89,929

General Counsel 144 27,464 151 29,271 151 27,964

Chief Acquisition Officer/

Senior Procurement Executive (OGP) 33 8,378 30 5,915 30 5,784

Communications & Marketing 18 4,925 21 5,876 18 5,192

Civil Rights 23 4,380 25 4,482 25 4,402

Office of Mission Assurance 14 2,386 97 16,805 97 15,866

Small Business Utilization 12 1,706 36 4,838 36 4,788

Office of Administration Services 52 27,050 125 52,198 118 48,936

Other Reimbursable 1 / 0 1,854 0 0 0 0

Subtotal, Staff Office Internal Authority 1,172 456,792 2,380 680,053 2,288 635,576

External Reimbursable 32 15,387 32 16,116 31 16,083

Major Equipment Acquisition & Development 0 5,958 0 8,945 0 13,970

Total, Working Capital Fund 1,204 478,136 2,412 705,114 2,319 665,629

FY 2013 FY 2014 FY 2015
U.S. General Services Administration

Working Capital Fund 

WCF-7

Working Capital Fund Total Authority

(Dollars in Thousands)

FY 2013 Actual

FY 2014 

Current

FY 2015 

Request

Full-Time Equivalents 1,204.0 2,412.0 2,319.0

FY 2013 Actual

FY 2014 

Current

FY 2015 

Request

11.1 Full-time, permanent.................................. $ 121,446 $ 231,417 $ 226,848

11.3 Other than full-time permanent..................... 691 1,833 2,092

11.5 Other personnel compensation..................... 1,162 4,502 4,286

11.8 Special personnel services payments............ 7 0 0

12.1 Civilian personnel benefits........................... 47,695 86,071 82,650

13.0 Benefits for former personnel....................... 1,398 1,097 1,750

21.0 Travel and transportation of persons.............. 750 3,708 2,890

22.0 Transportation of things.............................. 1,358 1,005 951

23.1 Rental payments to GSA............................. 21,295 36,869 38,847

23.2 Rental payments to others.......................... 0 127 0

23.3 Communications and utilities....................... 24,819 27,282 27,081

24.0 Printing and reproduction............................ 905 737 544

25.1 Advisory and assistance services................. 149,124 164,078 127,167

25.2 Other services from non-Federal sources....... 40 28,400 25,830

25.3 Other goods & services from Federal sources. 38,316 25,656 21,175

25.4 Operation and maintenance of facilities.......... 0 0 0

25.6 Medical care............................................ 0 0 0

25.7 Operation and maintenance of equipment....... 50,125 77,632 82,378

25.8 Subsistence and support of persons............. 0 0 0

26.0 Supplies and materials............................... 847 1,936 1,708

31.0 Equipment............................................... 16,481 12,765 19,432

32.0 Land and structures................................... 0 0 0

33.0 Investments and loans............................... 0 0 0

41.0 Grants, subsidies, and contributions.............. 0 0 0

42.0 Insurance claims and indemnities................. 1,678 0 0

43.0 Interest and dividends................................ 0 0 0

44.0 Refunds................................................. 0 0 0

99.0 Obligations, Appropriated (Annual)............ $ 478,136 $ 705,114 $ 665,629

Subtotal, PC&B............................... 172,400 324,919 317,626

Subtotal, Non-labor.......................... 305,737 380,195 348,003
U.S. General Services Administration

Working Capital Fund 

WCF-8

Description of WCF Services by Office

Office of the Chief Financial Officer: FY 2015 Budget Request - $123,468,000

The Office of the Chief Financial Officer (CFO) provides strategic planning, budgeting and 

financial management services to the Public Buildings Service (PBS), Federal Acquisition 

Service (FAS), Office of Government-wide Policy (OGP), Office of Citizen Services and 

Innovative Technologies (OCSIT), and other staff offices as well as over 50 independent 

agencies and commissions. CFO objectives are:

● Reducing agency-wide indirect costs

● Implementing an agency-wide risk management framework

● Facilitating a fully integrated performance-based decision making process

● Driving quality data-driven analytics and management decision making capabilities

● Maintaining a lean and skilled financial management workforce

The OCFO works to increase data driven decision-making and resource allocation, as well as to 

increase transparency and operational efficiency across the GSA financial community. The 

OCFO assures that GSA financial data is compliant, reliable and timely, and that internal 

controls comply with the Federal Managers Financial Integrity Act (FMFIA). This allows GSA to 

maintain an unqualified “clean” financial opinion during the annual financial audit. The OCFO is 

also focused on driving efficiency across GSA, with the goal of reducing agency-wide indirect 

costs.

After consolidation is completed all financial professionals in GSA will report to the GSA OCFO. 

This will improve internal controls and efficiency as the OCFO drives standardized financial 

processes across the agency. Compared to the current FY 2014 budget, the FY 2015 FTE 

request has 78 fewer FTE.

Shared Services: FY 2015 Budget Request - $46,784,715

The different offices of the OCFO are charged to the staff offices based on the level of support 

provided by the OCFO. Offices are split up by function including financial policy and operations, 

budget formulation and execution, and financial services. The costs of financial services and 
U.S. General Services Administration

Working Capital Fund 

WCF-9

financial policy are based on workload statistics. The financial audit costs are allocated based 

on the contract costs from the audit plan. The budget office and general oversight activities in 

the OCFO are allocated based on the funded FTE of each service and staff office.

Selected Services: FY 2015 Budget Request - $71,509,285

The OCFO selected services budget consist of the customer focused financial services support 

that is one hundred percent dedicated to support PBS and FAS. The costs for these services 

are directly charged to FAS and PBS.

External Services: FY 2015 Budget Request - $5,174,000

The OCFO provides payroll support, financial and childcare subsidy administration services to 

over 50 independent agencies, boards and commissions. These services are reimbursed on a 

fee for service basis and save the taxpayer money by reducing duplication across the 

government.
U.S. General Services Administration

Working Capital Fund 

WCF-10

Office of the Chief Information Officer: FY 2015 Budget Request -

$330,679,000

The Office of the Chief Information Officer (OCIO) provides information technology support to 

all GSA offices. As a result of the consolidation, most IT professionals now report to the OCIO. 

This has resulted in immediate savings through the elimination of duplicative support contracts 

spread out across the agency. The implementation of the long-term plan to fully integrate 

existing contracts is underway, and will result in additional savings over time. Compared to the 

current FY 2014 budget, the FY 2015 FTE remains the same while the OCIO focuses on 

converting from contractors to government employees where possible.

Shared Services: FY 2015 Budget Request - $195,048,250

The OCIO shared services budget consists of the management and oversight of office-specific 

IT investments, financial management systems, human capital systems, including operation, 

maintenance, and enhancements of national applications. OCIO manages GSA’s internal IT 

assets, server resources, network resources, end-user devices, and building monitoring and 

control devices. This function includes local support, help desk functions, all circuits, wireless 

contract, and telephony. It also includes GSA long distance telephone access, wireless 

telephone service, and teleconferencing services. The costs of the OCIO shared services are 

allocated in a number of ways:

● Financial system costs are allocated based on transaction counts

● HR system costs are allocated based on FTE

● Wireless costs are allocated based on the number of devices in each service and staff 

office

● Connectivity and security costs are based on the number of computers in each service 

and staff office

Selected Services: FY 2015 Budget Request - $119,372,290

The OCIO selected services budget consists of user-specific infrastructure management that 

focuses on the management of IT assets, server resources, network resources, end-user 

devices, and building monitoring and control devices, as well as user specific enterprise support 
U.S. General Services Administration

Working Capital Fund 

WCF-11

services that concentrate on business relationship management, service management, vendor 

and contract management, and training.

External Services: FY 2015 Budget Request - $2,288,000

The OCIO provides a cost-effective, secure platform to deliver financial management and 

administrative systems services to external clients. The Office of Financial Management 

Systems provides professional systems support for the financial management, payroll/labor 

distribution, time and attendance, and leave and overtime request systems (and other 

applications) that includes: business requirements and change management; systems 

operations and maintenance; financial data management and reporting; systems access control, 

security and integrity; systems user training; and help desk support. OCIO also services and 

supports the network and back-end systems required by the Elections Assistance Commission 

Office, and provide GSA's Comprehensive Human Resources Integrated System (CHRIS) to 

other government agencies, boards and commissions.

Major Equipment Acquisition & Development: FY 2015 Budget Request - $13,970,137

The major equipment acquisition and development activity may be utilized for agency-wide 

investments to implement the Chief Financial Officers Act of 1990, such as: acquisition of capital 

equipment, automated data processing systems and financial management and management 

information systems. 

The FY 2015 request continues to fund the third and final phase of Billing and Accounts 

Receivable (BAAR), a financial system that enables GSA to retire National Electronic 

Accounting and Reporting (NEAR) as well as close a data center providing combined savings of 

approximately $6 million per year. The final phase implements remaining system capabilities 

and GSA business lines.
U.S. General Services Administration

Working Capital Fund 

WCF-12

Office of Administrative Services: FY 2015 Budget Request - $48,936,450

The Office of Administrative Services (OAS) is responsible for agency-wide policy, planning 

and service delivery for executive correspondence management, Freedom of Information Act 

(FOIA), internal GSA fleet, printing and forms management, directives and orders management, 

mail management, personal property management, travel and purchase card program 

management, GAO and IG audit management, as well as general administrative and 

management services. 

The office also provides oversight and direction of GSA’s workspace planning and initiatives, 

facility design, facilities management, and internal contracting services for Central Office. 

Additionally, OAS pays the rent for GSA’s 1800 F Street headquarters building.

As a result of consolidation and anticipated efficiencies, the FY 2015 budget request includes 7 

fewer FTE compared to the FY 2014 budget.

Shared Services: FY 2015 Budget Request - $48,614,450

The majority of the Office of Administrative Services’ (OAS) budget is considered shared 

services, including the 1800 F Street rent. The OAS shared services budget consists of the 

planning and service delivery for executive correspondence management, Freedom of 

Information Act (FOIA), internal GSA fleet, printing and forms management, directives and 

orders management, mail management, personal property management, travel and purchase 

card program management, GAO and IG audit management, as well as general administrative 

and management services. The costs of the OAS shared services are allocated in a number of 

ways:

Travel and purchase card program management costs are allocated based on the 

number of travel and purchase card transactions

Freedom of Information Act (FOIA) costs are allocated based on the number of action 

items routed through the GSA correspondence system

GAO and IG audit management are allocated based on the number of audit action items 

reviewed

General administrative and management services costs are allocated based on FTE
U.S. General Services Administration

Working Capital Fund 

WCF-13

Selected Services: FY 2015 Budget Request - $322,000

The OAS selected services budget consists of the National Archives and Records 

Administration (NARA), which includes storage, associated fees, and services such as 

transportation and scanning of records for GSA services and staff offices. The costs for these 

services are allocated based on the cubic feet of storage provided to each Service/Staff Office 

(SSO) divided by the total cubic feet of storage multiplied by the total cost of the activity.
U.S. General Services Administration

Working Capital Fund 

WCF-14

Office of the Human Resources Management: FY 2015 Budget Request -

$89,929,000

The Office of the Human Resources Management (OHRM) provides the tools and advice that 

create a diverse, agile and high performing GSA workforce. OHRM provides and maintains an 

evolving portfolio of effective and innovative end-to-end human resource and human capital 

solutions that meet partners’ and external stakeholders’ needs. The OHRM is guided by the 

Agency’s Human Capital Strategic Plan, which provides the framework for GSA to achieve its 

human capital vision of a competent, well-managed workforce doing the right work, at the right 

time and achieving the right results. Through its operational programs, the OHRM is focused on 

hiring, developing, and retaining a talented and diverse workforce. 

Through its programs and activities throughout the GSA human resources lifecycle, the OHRM

is responsible for developing and implementing a number of innovative programs that provide 

the best possible service to its employees, managers and external customers.

Some examples of these include:

● GSA is a recognized leader in telework with over half of all employees teleworking at 

least one day a week.

● The OHRM for manages GSA’s portion of the government-wide workforce engagement 

survey administered by OPM. 

● The OHRM enhances Agency human resources operations through the establishment of 

enterprise-wide procedures and implementation of service level agreements and 

performance commitments.

● The OHRM is developing an agency competency modeling framework for mission critical 

occupations and mid-career development.

● The OHRM funds the Transit Subsidy program to encourage employees to use public 

transportation reducing traffic, employee costs, and mitigating environmental impacts.

● The OHRM funds the Child Care Subsidy program to support GSA’s ability to recruit and 

retain the best and brightest talent for public service.

● The OHRM continues to explore new ways to bring information to its customers through 

social media and other outreach tools.

As a result of the consolidation and increased efficiencies the FY 2015 budget request includes 
U.S. General Services Administration

Working Capital Fund 

WCF-15

5 fewer FTE compared to the FY 2014 budget. These reductions come as GSA continues to 

invest in its future workforce through increased FTE for different professional tracks in the 

Emerging Leaders program hosted by the OHRM.

Shared Services: FY 2015 Budget Request - $62,950,307

The Office of the Human Resources Management (OHRM) provides services to the entire 

GSA in a consolidated fashion to help reduce redundancy and ensure a standard level of 

service. Shared services include:

● Arbitration

● Child care subsidy

● Employee health room services

● Enterprise assistance program

● GSA leadership program

● Health & Dependent Care Federal Flexible Spending

● Hiring actions

● Human capital strategy

● New employee orientation

● Security clearance fees for GSA contractors

● Transit subsidy

● Workers’ compensation

● Emerging Leaders Program (ELP)

The costs of these programs are allocated based on workload data when available, such as 

transit subsidy and workers compensation, and the rest are based on FTE for each staff office.

Selected Services: FY 2015 Budget Request - $26,978,703

The Office of the Human Resources Management (OHRM) provides some selected services 

to specific GSA customers. These services include:

● GSA employee security clearances

● University for People training
U.S. General Services Administration

Working Capital Fund 

WCF-16

Office of General Counsel: FY 2015 Budget Request - $27,964,000

The Office of General Counsel (OGC) provides legal support to GSA offices and programs. 

OGC legal support includes counsel with respect to contracting, acquisition policy, management 

of real and personal property, bankruptcy, historic preservation, environmental compliance, 

litigation, personnel and labor relations, appropriations law, the Freedom of Information Act, the 

Privacy Act, the Federal Advisory Committee Act, and regulations implementing GSA 

authorities. 

The OGC also advises on responses to Congressional inquiries, develops and manages the 

GSA ethics program, and supports alternative dispute resolution efforts, and social media 

initiatives. The OGC is working towards an improved staffing mix that will allow them to operate 

more efficiently and provide increased legal support without an increase in funding. The FY 

2015 budget request includes no change in FTE compared to the FY 2014 budget, but includes 

an overall budget decrease of $1 million.

Shared Services: FY 2015 Budget Request - $27,964,000

The entire budget of the Office of General Counsel (OGC) is considered shared services that 

offices cannot opt out of receiving. The costs of the legal support services, which include OGC 

personnel, legal and electronic databases, are allocated based on labor hours supporting each 

internal GSA customer office.
U.S. General Services Administration

Working Capital Fund 

WCF-17

Office of Small Business Utilization: FY 2015 Budget Request - $4,788,000

The Office of Small Business Utilization (OSBU) advocates for various categories of small 

businesses. These include businesses that are small and disadvantaged, veteran-owned and 

service-disabled veteran-owned, located in Historically Underutilized Business Zones, and 

women-owned. The OSBU mission is to promote increased access by small businesses to 

GSA’s nationwide procurement opportunities.

OSBU monitors and implements small business policies and manages a range of programs 

within the scope of the Small Business Act of 1953, as amended by Public law 95-507. This 

includes, but is not limited to:

● Meeting with contracting officers and procurement personnel to encourage small 

business participation for all acquisitions

● Working with the procurement officials to perform market research

● Assisting in the development of non-bundling strategies and non-consolidation strategies

● Reviewing the Small Business Analysis Record (GSA Form 2689), Acquisition Plans and 

Subcontracting Plans for completeness and determining if market research is sufficient 

and all justifications are properly documented and compliant with FAR Part 19

● Attending all meetings regarding major procurements. 

GSA’s small business programs nurture entrepreneurial opportunities, open doors to new 

business horizons, and enhance technological capabilities. The FY 2015 budget request does 

not request any additional FTE compared to the current FY 2014 budget.

Shared Services: FY 2015 Budget Request - $4,788,000

The entire budget of the Office of Small Business Utilization (OSBU) is considered shared 

services that offices cannot opt out of receiving. OSBU’s outreach activities make it possible for 

the small business community to meet key contracting experts and receive counseling regarding 

the procurement process. These activities include:

● Procurement networking sessions

● Marketing strategies and techniques workshops
U.S. General Services Administration

Working Capital Fund 

WCF-18

● Webinars

● Roundtables

● Procurement conferences

OSBU activities are supported by program experts at GSA headquarters and through Small 

Business Utilization Centers in GSA’s 11 Regional Offices across the country. The cost of the 

OSBU program is allocated based on combination of small business compliance review eligible 

contract dollars and/or FTE for GSA’s service and staff offices.
U.S. General Services Administration

Working Capital Fund 

WCF-19

Office of Civil Rights: FY 2015 Budget Request - $4,402,000

The Office of Civil Rights (OCR) implements both the internal and external GSA Civil Rights 

programs. The internal civil rights program ensures equal employment opportunity for all GSA 

employees and applicants for employment without regard to gender, race, color, national origin, 

religion, disability, age (40 and over), genetic information, and retaliation for protected Equal 

Employment Opportunity (EEO) activity. 

The internal civil rights program processes EEO complaints of discrimination pursuant to 29 

C.F.R. Part 1614. The external civil rights programs ensure nondiscrimination by GSA's Federal 

Financial Assistance, Federally Conducted, and Environmental Justice programs. Both the 

internal and external civil rights programs have enforcement and prevention as the cornerstones 

of their programs. The FY 2015 budget request does not request any additional FTE compared 

to the current FY 2014 budget.

Shared Services: FY 2015 Budget Request - $4,402,000

The entire budget of the Office of Civil Rights (OCR) is considered shared services that offices 

cannot opt out of receiving. The WCF pays for Equal Employment Opportunity services and the 

non-discrimination program for the GSA. Both of these services are allocated based on FTE in 

each service and staff office.
U.S. General Services Administration

Working Capital Fund 

WCF-20

Office of Mission Assurance: FY 2015 Budget Request - $16,156,000

The Office of Mission Assurance ensures resilience and continuity of the agency’s critical 

business processes by integrating and coordinating activities across all domains of security 

(physical, cyber, personnel, and industrial), HSPD-12 credentialing, emergency management, 

and contingency and continuity planning. OMA provides an enterprise-wide approach to 

mission assurance planning while assuring the safety, privacy, and security of GSA facilities, 

people, and IT assets nationwide. The WCF pays for the OMA services that are not related to 

domestic and national security emergencies.

The OMA continuity mission is authorized by the National Continuity Policy (NSPD-51/HSPD20) and directly supports GSA responsibilities to recover and perform our primary mission 

essential functions during a continuity event. OMA also supports the agency continuity mission 

by developing agency-wide guidance, policies, plans and procedures as well as tests, training 

and exercises to ensure readiness. In addition OMA sets the agency-wide policies, procedures, 

and guidance related to emergency management, HSPD-12 and security. The FY 2015 budget 

request does not request any additional FTE compared to the current FY 2014 budget.

Shared Services: FY 2015 Budget Request - $15,866,000

The internal support provided by the Office of Mission Assurance (OMA) is considered shared 

services that offices cannot opt out of receiving. The WCF pays for HSPD-12 services, 

emergency management support, and security. The HSPD-12 costs are allocated based on the 

number of HSPD-12 cards for each service and staff office. The emergency management and 

security costs are allocated based on FTE for the service and staff offices that receive these 

support services from OMA.

External Services: FY 2015 Budget Request - $290,000

OMA also provides administrative support to a classified DoD mission. The costs of the 

administrative support are recovered through collections against an interagency agreement.
U.S. General Services Administration

Working Capital Fund 

WCF-21

Office of Communication and Marketing: FY 2015 Budget Request -

$5,192,000

The Office of Communications and Marketing (OCM) provides information on GSA activities 

to employees and external audiences, including the media, agency customers and the American 

public. OCM accomplishes its mission with a coordinated, integrated program of messaging 

and strategic communication initiatives. To maximize efficiencies and reduce costs, OCM is 

consolidating web design contracts from across the agency to provide best value to GSA’s 

customers and the tax payer. A separate budget is provided by the Operating Expense 

appropriation for specific activities. The FY 2015 budget request includes 3 fewer FTE 

compared to the current FY 2014 budget.

Shared Services: FY 2015 Budget Request - $3,627,278

The majority of the Office of Communications and Marketing (OCM) Working Capital Fund

budget is shared across the staff offices in GSA. These funds are to provide enterprise web 

management services and other communication support to GSA. These costs are allocated 

based on the funded FTE for each staff office.

Selected Services: FY 2015 Budget Request - $1,564,722

The Office of Communications and Marketing (OCM) provides selected services to GSA staff 

offices as requested. These services include multiple forms of visual media including graphics, 

video and general use printing. The cost of these services is then charged to the staff office 

based on the level of effort of each project.
U.S. General Services Administration

Working Capital Fund 

WCF-22

Office of Congressional and Intergovernmental Affairs: FY 2015 Budget 

Request - $1,331,000

The Office of Congressional and Intergovernmental Affairs (OCIA) is funded out of the 

Operating Expenses appropriation; however the office uses the WCF for the reimbursable 

services it provides to Congressional members across the country.

External Services: FY 2015 Budget Request - $1,331,000

The Office of Congressional and Intergovernmental Affairs (OCIA) coordinates services to over 

1,400 House-district and Senate-state offices nationwide. OCIA provides acquisition of office 

space, furniture and furnishings, property disposal, equipment and supplies, and storage and 

relocation services. 
U.S. General Services Administration

Working Capital Fund 

WCF-23

Office of Government-wide Policy: FY 2015 Budget Request - $5,784,000

The Chief Acquisition Officer (CAO) in the Office of Government-wide Policy (OGP) uses 

WCF funding to provide procurement policies and guidance for GSA acquisition management 

activities. The FY 2015 budget request does not request any additional FTE compared to the 

current FY 2014 budget, but includes a reduction of $131 thousand.

Shared Services: FY 2015 Budget Request - $5,784,000

The Chief Acquisition Officer (CAO) in the Office of Government-wide Policy (OGP) 

includes operations for GSA's procurement management reviews, suspension and debarment 

program, acquisition policy including the GSA regulations management function, and the 

acquisition workforce program, and covers all GSA regional and organizational unit operations 

and compliance with FAR based regulations and standards of integrity. The cost of this 

program is allocated based on FTE for the internal GSA service and staff offices.
U.S. General Services Administration

Working Capital Fund 

WCF-24

Office of Citizen Services and Innovative Technologies: FY 2015 Budget 

Request - $7,000,000

The Office of Citizen Services and Innovative Technologies (OCSIT) uses the WCF to 

provide reimbursable support to other agencies for the Government-wide Electronic Capital 

Planning and Investment Control (eCPIC) program. 

External Services: FY 2015 Budget Request - $7,000,000

The Office of Citizen Services and Innovative Technologies (OCSIT) hosts the Governmentwide Electronic Capital Planning and Investment Control (eCPIC) Program which provides 

support services to Federal agencies that use the eCPIC system. Agencies use the system to 

formulate and submit capital budgets; make, control and evaluate major and non-major 

IT investments; and mange IT portfolios in support of agency missions. These services include 

hosting services (shared service), help desk, training, technical support, membership in the 

Federal eCPIC Steering Committee, and dedicated program management.
U.S. General Services Administration

Working Capital Fund 

WCF-25

FY 2014 and FY 2015 GSA Working Capital Fund Bill

GSA Working Capital Fund Bill

$(000) FY 2013 Bill

FY 2014 

Estimate

FY 2015 

Request

FY2013 - FY2015 

Delta

FY2014 - 

FY2015 Delta

Public Buildings Service 227,057 344,030 330,209 103,153 (13,821)

Federal Buildings Fund 227,057 344,030 330,209 103,153 (13,821)

Federal Acquisition Services 165,335 291,873 266,278 100,943 (25,595)

Acquisition Services Fund 165,335 291,873 266,278 100,943 (25,595)

Office of Governmentwide Policy 9,626 11,087 10,635 1,010 (452)

Governmentwide Policy 9,308 10,622 10,207 900 (415)

Federal Management Counsels Program Analysis 275 342 323 47 (19)

Presidential Management Advisory Board 42 123 105 63 (18)

Office of Inspector General 3,834 2,500 2,500 (1,334) -

Office of Citizens Services & Innovative Technologies 3,581 5,580 5,464 1,883 (116)

Federal Citizen Services Fund 3,581 5,580 5,464 1,883 (116)

Former Presidents 30 29 32 2 3

Operating Expenses 9,023 13,506 13,066 4,043 (441)

Real Property Disposal 2,778 4,180 4,004 1,226 (176)

Office of Communications & Marketing 1,199 2,129 2,058 860 (70)

Management & Administration 4,263 6,549 6,385 2,122 (164)

Civilian Board of Contract Appeals 784 648 619 (165) (30)

Working Capital Fund 2,595 2,757 3,023 429 266

Finance External Services - Internal Agreements 2,213 2,461 2,740 527 279

Chief People Officer - Agency Liaison Division 318 230 220 (98) (10)

Electronic Capital Planning & Investment Control (eCPIC) System 64 66 63 (0) (2)

Total, GSA Working Capital Fund Bill 421,079 671,363 631,207 210,128 (40,156)
U.S. General Services Administration

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U.S. General Services Administration

PERMANENT BUDGET AUTHORITY

Fiscal Year FY 2015 Budget Request

CONTENTS

Transportation Audit Contracts and Contract Administration.............................................. 2

Program Description..................................................................................................... 2

Authorizing Legislation ................................................................................................. 2

FY 2014 Operating Plan and FY 2015 Budget Estimate.............................................. 3

Obligations by Object Classification ............................................................................. 5

Amounts Available for Obligation ................................................................................. 6

Acquisition Workforce Training Fund .................................................................................. 7

Program Description..................................................................................................... 7

Authorizing Legislation ................................................................................................. 7

FY 2014 Operating Plan and FY 2015 Budget Estimate.............................................. 7

Obligations by Object Classification ............................................................................. 8

Amounts Available for Obligation ................................................................................. 8

Expenses, Disposal of Surplus Real and Related Personal Property ................................ 9

Program Description..................................................................................................... 9

Authorizing Legislation ................................................................................................. 9

FY 2014 Operating Plan and FY 2015 Budget Estimate............................................ 10

Obligations by Object Classification ........................................................................... 10

Amounts Available for Obligation ............................................................................... 11

Obligations by Program Activity.................................................................................. 12
U.S. General Services Administration

Permanent Budget Authority

P-2

Transportation Audit Contracts and Contract Administration

Program Description 

This permanent, indefinite appropriation provides for the detection and recovery of 

overpayments to carriers for Government moves under rate and service agreements 

that are established by GSA or by other Federal agency traffic managers. Program 

expenses are financed from overcharges collected from transportation service providers 

(TSPs) as a result of post-payment audits that examine the validity, propriety, and conformity of charges with the proper rate authority. Funds recovered in excess of expenses are returned to the U.S. Treasury. In FY 2013, the program returned $21.0 million to 

the U.S. Treasury, after covering operating costs of $10.3 million.

Authorizing Legislation 

The Expenses of Transportation Audit Contracts and Contract Administration appropriation is permanently authorized by 31 U.S.C. § 3726(e).

“Sec. 3726. Payment for transportation

(e) Expenses of transportation audit post payment contracts and contract 

administration, and the expenses of all other transportation audit and audit-related 

functions conferred upon the Administrator of General Services, shall be financed 

from overpayments collected from carriers on transportation bills paid by the 

Government and other similar type refunds, not to exceed collections. Payment to 

any contractor for audit services shall not exceed 50 percent of the overpayment 

identified by contract audit.” 
U.S. General Services Administration

Permanent Budget Authority

P-3

FY 2014 Operating Plan and FY 2015 Budget Estimate 

The Transportation Audits program is managed by the Federal Acquisition Service 

(FAS) in the Travel, Motor Vehicles and Card Services (TMVCS) Portfolio. The FY 

2015 budget request provides $12,502 thousand for the Transportation Audits program, an increase of $1,828 thousand from the FY 2014 estimate, including reductions from sequestration. The increase includes $828 thousand to more effectively 

perform the activities and functions required by 31 U.S.C. § 3726 and a $1,000 

thousand investment in a business model and alternatives assessment in response 

to GSA’s Inspector General (IG) audit findings in FY 2013.

Base Funding Efforts 

In FY 2014 and FY 2015, the Transportation Audits program will continue to focus on its 

pre-payment oversight and post-payment audits of government-wide transportation bills 

and recoveries of overcharges, in support of 31 U.S.C. 3726. The program office will 

oversee the implementation and performance of prepayment audits for transportation 

services procured around the world by federal agencies; conduct post-payment audits 

of transportation bills; execute the collection of overcharges; defend the overcharges via 

evidence, regulation and background; adjudicate claims brought on by TSPs and or 

federal agencies, when needed; handle bankruptcies and litigation related to TSPs, for 

federal agencies; and act as an expert in court cases brought on in litigation, if needed. 

In order to more effectively perform the activities and functions required by law, the 

program requires $828 thousand in additional funds from the FY 2014 estimate.

Business Model and Alternatives Assessment in Response to OIG Audits 

In FY 2012 and FY 2013, GSA’s IG performed two audits that focused on the 

Transportation Audits programs pre- and post-payment audit processes. The audit 

found that the program was not performing effective oversight of pre-payment audit 

responsibilities which could result in agencies paying excess transportation charges and 

not maximizing collections of funds owed to the government in post-payment responsibilities. In response to the IG’s audits, the Tranportation Audits program is requesting a 

$1.0 million increase in FY15 to fund a business model and alternatives assessment 
U.S. General Services Administration

Permanent Budget Authority

P-4

effort to ensure that the program is adhering to Congressional mandates, and federal 

agencies are compliant with 31 U.S.C. 3726. This business model and alternatives 

assessment is projected to enhance data transparency, increase collections of overcharges, improve oversight of the statutory requirement that requires federal agencies 

to perform a prepayment audit of transportation expenses, and increase compliance of 

government agencies to 31 U.S.C. 3726, which the Transportation Audits program has 

been delegated the authority to manage.
U.S. General Services Administration

Permanent Budget Authority

P-5

Obligations by Object Classification

(Dollars in Thousands)

FY 2013 

Actual

FY 2014 

Plan

FY 2015 

Request

11.1 Full-time, permanent........................................................ 2,510 3,135 3,175

11.3 Other than full-time permanent........................................... 0 0 0

11.5 Other personnel compensation........................................... 39 31 13

12.1 Civilian personnel benefits................................................. 532 621 629

21.0 Travel and transportation of persons....................................9 19 18

22.0 Transportation of things.................................................... 0 0 0

23.1 Rental payments to GSA........................... 111 107 92

23.3 Communications and utilities.............................................0 6 6

Subtotal, Rent, communications & utilities.......................... $111 $113 $98

24.0 Printing and reproduction.................................................. 0 0 0

25.1 Advisory and assistance services ...................................... 4,465 3,759 5,534

25.2 Other services from non-Federal sources ............................ 0 63 63

25.3 Other goods and services from Federal sources.................... 2,630 2,915 2,954

25.4 Operation and maintenance of equipment............................ 17 0 0

Subtotal, Contractual services...................................... $7,112 $6,737 $8,551

26.0 Supplies and materials.................................................... 10 0 0

31.0 Equipment.................................................................... 0 18 18

99.0 Obligations, appropriated (annual)............................. $10,323 $10,674 $12,502

Subtotal, PC&B.................................................... $3,081 $3,787 $3,817

Subtotal, Non-labor................................................ 7,242 6,887 8,685

99.9 Total obligations............................................................. $10,323 $10,674 $12,502

FTE 28.9 37.0 37.0
U.S. General Services Administration

Permanent Budget Authority

P-6

Amounts Available for Obligation

(Dollars in Thousands)

Special Fund Receipts:

FY 2013

Actual

FY 2014

Plan

FY 2015

Request

Balance, start of year....................................... $ 48,800 $ 29,382 $ 30,955

Receipts....................................................... 12,856 12,226 12,226

Excess collections returned to Treasury (21,000) (500) (500)

Appropriation to the warranted fund (130).......... (12,174) (10,674) (12,502)

Unobligated balance canceled from expenditure fund 900 521 2,931

Balance, end of year.................................... $ 29,382 $ 30,955 $ 33,110

Special Fund Expenditures:

FY 2013 

Actual

FY 2014

Plan

FY 2015

Request

Unobligated balance, start of year........................ $ 9,002 $ 10,335 $ 9,440

Recovery of prior-year obligations........................ 382 - -

Mandatory authority:

Appropriation........................................... 12,174 10,674 12,502

Unobligated balance, canceling........................... (900) (895) (2,931)

Unobligated balance, end of year......................... (10,335) (9,440) (6,509)

Total obligations....................................... 10,323 10,674 12,502

Net Outlays $ 8,455 $ 8,539 $ 9,202
U.S. General Services Administration

Permanent Budget Authority

P-7

Acquisition Workforce Training Fund

Program Description

The Acquisition Workforce Training Fund (AWTF) is a permanent, indefinite 

appropriation providing a stable source of funds to train the Federal civilian acquisition 

workforce. The AWTF is financed through a credit of five percent of the fees collected 

from non-Department of Defense activities by the General Services Administration 

(GSA) and other civilian agencies that manage Government-wide Acquisition Contracts 

(GWACs), Multiple Award Schedules (MAS) contracts, and other multi-agency 

contracts. Receipts are available for expenditure in the fiscal year collected, as well as 

the two following fiscal years. The AWTF is managed by the Federal Acquisition 

Institute (FAI) at GSA, in consultation with the White House Office of Federal 

Procurement Policy and the FAI Board of Directors.

Authorizing Legislation

The fund is authorized by 41 U.S.C. § 433(h)(3), as amended by Section 854 of Title VII 

of the National Defense Authorization Act for Fiscal Year 2008 (Public Law 110-181, 

January 28, 2008). The establishment and operation of FAI is authorized by 41 U.S.C. § 

1201, as amended by Section 864 of Title VIII of the National Defense Authorization Act 

for Fiscal Year 2011 (Public Law 112-81, December 31, 2011).

FY 2014 Operating Plan and FY 2015 Budget Estimate 

The FY 2015 budget request provides $13,120 thousand for FAI programs. FAI 

provides training and career development resources to the Federal civilian acquisition 

workforce ensuring a sustained investment and improving the collective competency of 

both current and future acquisition professionals. FAI works closely with its Board of 

Directors, the Chief Acquisition Officers’ Council, and various agencies and 

stakeholders, to identify the activities that will be funded from the AWTF. FAI develops 

and deploys training resources and other developmental opportunities needed to enable 

Federal acquisition professionals to transition to a service-oriented and technologydriven Federal marketplace.
U.S. General Services Administration

Permanent Budget Authority

P-8

Obligations by Object Classification

(Dollars in Thousands)

Amounts Available for Obligation 

(Dollars in Thousands)

FY 2013

Actual

FY 2014

Plan

FY 2015

Request

21.0 Travel and transportation of persons.............. $ 1 $ 5 $ 5

25.1 Advisory and assistance services................. 3,063 10,599 8,984

25.3 Other goods & services from Federal sources 6,881 5,155 4,131

25.7 Operation and maintenance of equipment..... 330 0 0

26.0 Supplies and materials............................. $5 $0 $0

99.0 Total obligations..................................... $ 10,280 $ 15,759 $ 13,120

Special Fund Receipt

FY 2013

Actual

FY 2014

Plan

FY 2015

Request

Balance, start of year....................................... $ 4,191 $ 1,779 $ 1,779

Receipts........................................................ 8,680 12,648 12,711

Appropriation to the expenditure fund.............. ($11,092) ($12,648) ($12,711)

Balance, end of year.................................... $ 1,779 $ 1,779 $ 1,779

Special Fund Expenditure

FY 2013

Actual

FY 2014

Plan

FY 2015

Request

Unobligated balance, start of year........................ $ 16,288 $ 16,849 $ 14,689

Recovery of prior-year obligations........................ 0 0 0

Mandatory authority:

Appropriation........................................... $ 11,092 $ 12,648 $ 12,711

Unobligated balance, expiring............................. (251) 0 0

Unobligated balance, end of year......................... (16,849) (14,689) (14,280)

Total obligations....................................... $ 10,280 $ 14,808 $ 13,120

Net Outlays $5,734 $13,759 $13,345
U.S. General Services Administration

Permanent Budget Authority

P-9

Expenses, Disposal of Surplus Real and Related Personal Property 

Program Description

This mandatory appropriation provides for the efficient disposal of real property assets 

that no longer meet the needs of landholding Federal agencies. Fees of auctioneers, 

brokers, appraisers, and environmental consultants; surveying costs; costs of advertising; costs of environmental and historical preservation services; highest and best use of 

property studies; property utilization studies; and deed compliance inspections are paid 

out of receipts from disposals in each year. Auctioneers and brokers familiar with local 

markets may be used to accelerate the disposal of surplus real property.

Authorizing Legislation

The Expenses, Disposal of Surplus Real and Related Personal Property appropriation 

is permanently authorized by 40 U.S.C. § 572(a). The appropriation is authorized to 

pay expenses directly or to reimburse another account for expenses already paid; 

however, the total amount paid and reimbursed in a fiscal year may not exceed 12 

percent of the proceeds of all disposals of real property.

The types of expenses that may be paid or reimbursed are limited to specific, 

enumerated expenditures:

(i) Fees of appraisers, auctioneers, and realty brokers, in accordance with the scale 

customarily paid in similar commercial transactions. 

(ii) Costs of environmental and historic preservation services, highest and best use of 

property studies, utilization of property studies, deed compliance inspection, targeted 

asset reviews, and the expenses incurred in a relocation. 

(iii) Advertising and surveying.

In addition, any amounts that are excess to the needs of the fund must be transferred 

to the Land and Water Fund of the Department of the Interior.
U.S. General Services Administration

Permanent Budget Authority

P-10

FY 2014 Operating Plan and FY 2015 Budget Estimate 

The FY 2015 budget request provides $9,446 thousand for the Real Property Disposal 

program. Obligations are based on properties planned for disposal in each year. 

Financing is provided through receipts from sales of surplus property and out-leasing of 

government-owned space.

Obligations by Object Classification

(Dollars in Thousands) 

FY 2013 FY 2015

Actual Request

24.0 Printing and reproduction.......................... $30 $25 $50

25.1 Advisory and assistance services............... 210 8,772 9,146

25.2 Other services from non-Federal sources 186 100 100

25.3 Other goods & services from Federal sources - 150 150

99.9 Total obligations................................... $426 $9,047 $9,446

FY 2014 

Plan
U.S. General Services Administration

Permanent Budget Authority

P-11

Amounts Available for Obligation 

(Dollars in Thousands)

Note: By statute, any receipts in excess of the long-term requirements of the Fund must be 

transferred out of the Fund and deposited into the Land and Water Conservation Fund of the 

Department of the Interior (DOI). 

Special Fund Receipts

FY 2014 FY 2015

Plan Request

Balance, start of year........................................ $83,166 $86,261 $86,261

Receipts, real property disposal..................... 7,098 12,000 12,000

Receipts, outleasing.................................... - 3,000 3,000

Net receipts.......................................... $7,098 $15,000 $15,000

Appropriation to the expenditure fund.............. (1,355) (9,047) (9,446)

Transfer to Land and Water Fund, DOI................. (3,109) (5,953) (5,554)

Unobligated balance, transferred in from Special Fund Expenditures 461 0 0

Balance, end of year.................................... $86,261 $86,261 $86,261

Special Fund Expenditures

FY 2014 FY 2015

Plan Request

Mandatory authority

Appropriation........................................... $1,355 $9,047 $9,446

Unobligated balance, sequestered (461) 0 0

Unobligated balance......................................... (468) 0 0

Total obligations...................................... $426 $9,047 $9,446

Net Outlays $1,080 $9,047 $9,446

FY 2013 

Actual

FY 2013 

Actual
U.S. General Services Administration

Permanent Budget Authority

P-12

Obligations by Program Activity 

(Dollars in Thousands)

FY 2013 FY 2014 FY 2015

Actual Plan Request

1. Utilization and Disposal - Real Property

a. Appraisers, auctioneers, brokers fees, surveying $133 $1,274 $1,424

b. Advertising 131 1,083 1,232

c. Environmental Services 14 982 982

d. Historical Preservation Services - 1,293 1,293

e. Highest and best use of property studies,

 utilization of property studies, Targeted Asset

 Reviews (TARS), deed compliance inspections

f. Expenses incurred in a Relocation - 2,000 2,000

Subtotal, Utilization and Disposal of Real Property $426 $8,532 $8,931

2. Outleasing of Government-owned Space

a. Appraisers, auctioneers, brokers fees, surveying $0 $500 $500

b. Advertising - 15 15

Subtotal, Outleasing............................................ $0 $515 $515

Total obligations................................................. $426 $9,047 $9,446

 148 1,900 1,900
U.S. General Services Administration

Permanent Budget Authority

P-13

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U.S. General Services Administration

General and Administrative Provisions

AP-1

Administrative Provisions [delete] insert Explanation 

SEC. 520. Funds available to the General 

Services Administration shall be available for 

the hire of passenger motor vehicles.

Section 520 authorizes GSA to use funds for 

the hire of passenger motor vehicles. GSA 

requests that this provision be retained.

Sec. 521. Funds in the Federal Buildings 

Fund made available for fiscal year [2014]

2015 for Federal Buildings Fund activities 

may be transferred between such activities 

only to the extent necessary to meet program 

requirements: Provided, That notice of any 

proposed transfers shall be [approved]

submitted in advance [by] to the 

Committees on Appropriations of the House 

of Representatives and the Senate.

Section 521 authorizes GSA to transfer funds 

within the Federal Buildings Fund to meet 

program requirements. GSA requests to 

retain this provision with modification. 

The first requested change would update the 

GSA reprogramming authority for the fiscal 

year of the request. GSA also requests 

authority to make necessary 

reprogrammings, subject to the notification of 

the Committees on Appropriations rather 

than seeking their advance approval. This 

change will allow GSA to adjust for changes 

in requirements in a more timely and 

responsive manner.

Sec. 522. Except as otherwise provided in 

this title, funds made available by this Act 

shall be used to transmit a fiscal year [2015]

2016 request for United States Courthouse 

construction only if the request: (1) meets the 

design guide standards for construction as 

established and approved by the General 

Services Administration, the Judicial 

Conference of the United States, and the 

Office of Management and Budget; (2) 

reflects the priorities of the Judicial 

Conference of the United States as set out in 

its approved 5-year construction plan; and (3) 

includes a standardized courtroom utilization 

study of each facility to be constructed, 

replaced, or expanded.

Section 522 requires that the fiscal year 2016

budget request meet certain standards. 

GSA requests to retain this provision with 

modification. This provision has been 

modified to update the fiscal year.
U.S. General Services Administration

Administrative Provisions

AP-2

Administrative Provisions [delete] insert Explanation 

Sec. 523. None of the funds provided in this 

Act may be used to increase the amount of 

occupiable square feet, provide cleaning 

services, security enhancements, or any 

other service usually provided through the 

Federal Buildings Fund, to any agency that 

does not pay the rate per square foot 

assessment for space and services as 

determined by the General Services 

Administration in consideration of the Public 

Buildings Amendments Act of 1972 (Public 

Law 92-313). 

Section 523 provides that no funds may be 

used to increase the amount of occupiable 

square feet, provide cleaning services, 

security enhancements, or any other service 

usually provided, to any agency which does 

not pay the requested rate. GSA requests 

that this provision be retained. 

Sec. 524. From funds made available under 

the heading ‘‘Federal Buildings Fund, 

Limitations on Availability of Revenue”, claims 

against the Government of less than 

$250,000 arising from direct construction 

projects and acquisition of buildings may be 

liquidated from savings effected in other 

construction projects with prior notification to 

the Committees on Appropriations of the 

House of Representatives and the Senate. 

Section 524 continues the provision that 

permits GSA to pay small claims less than 

$250,000 made against the Government. 

GSA requests that this provision be 

retained. 
U.S. General Services Administration

General and Administrative Provisions

AP-3

Administrative Provisions [delete] insert Explanation 

Sec. 525. In any case in which the 

Committee on Transportation and 

Infrastructure of the House of 

Representatives and the Committee on 

Environment and Public Works of the Senate 

adopt a resolution granting lease authority 

pursuant to a prospectus transmitted to 

Congress by the Administrator of the General 

Services Administration under 40 U.S.C. 

3307, the Administrator shall ensure that the 

delineated area of procurement is identical to 

the delineated area included in the 

prospectus for all lease agreements, except 

that, if the Administrator determines that the 

delineated area of the procurement should 

not be identical to the delineated area 

included in the prospectus, the Administrator 

shall provide an explanatory statement to 

each of such committees and the Committees 

on Appropriations of the House of 

Representatives and the Senate prior to 

exercising any lease authority provided in the 

resolution. 

Section 525 grants GSA lease authority 

pursuant to a prospectus transmitted to 

Congress by the Administrator of the General 

Services Administration under 40 U.S.C. 

3307. GSA requests that this provision be 

retained.
U.S. GENERAL SERVICES

ADMINISTRATION

ANNUAL PERFORMANCE PLAN AND REPORT

Fiscal Year 2015 Budget Request
U.S. General Services Administration

ANNUAL PERFORMANCE PLAN AND REPORT

Fiscal Year (FY) 2015 Budget Request

CONTENTS

Agency Information.................................................................................................................. 3

Overview .................................................................................................................................3

Mission, Vision and Goals........................................................................................................3

GSA Priorities..........................................................................................................................4

Organizational Structure ..........................................................................................................4

Strategic Framework................................................................................................................6

Performance Overview ............................................................................................................8

Cross Agency Priority Goals ................................................................................................. 10

Agency Priority Goals ............................................................................................................ 10

Strategic Goal 1: Provide savings to federal departments and agencies........................... 11

Strategic Objective 1.1: Deliver contracting solutions to generate customer savings ............. 12

Strategic Objective 1.2: Improve the federal utilization of space ............................................ 21

Strategic Objective 1.3: Reduce resource use and environmental impact.............................. 26

Strategic Goal 2: Improve the efficiency of operations and service delivery..................... 37

Strategic Objective 2.1: Increase the efficiency of GSA operations........................................ 38

Strategic Objective 2.2: Enhance asset management............................................................ 50

Strategic Goal 3: Deliver Excellent Customer Service......................................................... 54

Strategic Objective 3.1: Enhance relationships with customers, 

suppliers and stakeholders .................................................................................................... 55

Strategic Objective 3.2: Support small and disadvantaged business ..................................... 65

Management Objectives......................................................................................................... 71

Management Objective M.1: Deliver a mission ready workforce ............................................ 72

Management Objective M.2: Streamline information technology and improve 

data quality and reporting ...................................................................................................... 76

Management Challenges........................................................................................................ 79

Evaluation and Research ....................................................................................................... 79

Data Validation and Verification. ........................................................................................... 79

Lower-Priority Program Activities......................................................................................... 79

Appendix A: FY 2012-2013 Priority Goal Report .................................................................. 80

Appendix B: FY 2014-2015 Priority Goal Plans .................................................................... 92
U.S. General Services Administration 

Annual Performance Plan and Report

APR-3

Agency Information

Overview

The U.S. General Services Administration (GSA) provides the spaces, services, and goods 

required 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 to government organizations and the military. 

Our policies promote management best practices and efficient government operations.

GSA has an annual business volume of over $60 billion, manages over 205 thousand fleet 

vehicles, and manages a building portfolio, which includes 9,011 owned or leased assets, more 

than 378 million rentable square feet of workspace and 471 historic properties. We have a 

continuing commitment to our federal customers and the American public to provide services in 

the most cost-effective manner possible, and we deliver on this promise by steadily improving 

organizational performance. At a time when budgets are shrinking across the federal 

government, we are providing the value that our partner agencies need so that they can focus 

their resources on fulfilling their own important mission to the American people.

Mission, Vision and Goals

GSA was established on July 1, 1949, as a result of the Hoover Commission’s recommendation 

that consolidating administrative functions across government into one organization would be 

more effective and economical for the government and would avoid “senseless duplication, 

excess cost, and confusion in handling supplies, and providing space.” Our mission, vision and 

goals were selected to continue in this tradition and focus our activities to make government 

more effective and economical by providing savings to federal departments and agencies, 

improving the efficiency of operations and service delivery, and delivering excellent customer 

service.

Mission

Deliver the best value in real estate, acquisition and 

technology services to government and the American people

Vision

Providing government with the services and resources it needs 

to accomplish its work as effectively and efficiently as possible

Values

Integrity • Transparency • Teamwork

The scope of the work we do at GSA is vast and varied, but the mission is simple and to the 

point. We serve the government and the American people. Through implementing our mission, 

we aspire to achieve three strategic goals: 

Savings – Provide savings to federal departments and agencies. We will use our 

purchasing power and expertise to deliver cost-effective real estate, acquisition and 

technology solutions to federal departments and agencies.

Efficiency – Improve the efficiency of operations and service delivery. We will 

streamline our operations to offer high quality real estate, acquisition, and technology 

services at a good value to federal departments and agencies. 
U.S. General Services Administration 

Annual Performance Plan and Report

APR-4

Service – Deliver excellent customer service. We will deliver excellent customer 

service to federal agencies and departments by making it easier to reliably meet their 

real estate, acquisition and technology needs.

GSA Priorities

We are committed to six priorities that guide us in meeting our mission.

1. Delivering Better Value and Savings. Using the purchasing power of the federal 

government we will reduce costs to our customer agencies, enabling them to focus on their 

core missions. We will further improve this area by finding more ways to solve our 

customers’ problems in the coming year. We will look for new ways to help these agencies 

make their purchases smarter and more efficient. At the same time, we will look for new and 

innovative ways to maximize the value of our real estate assets.

2. Serving Our Partners. Every day the work that we do helps our customer agencies focus 

on their missions. Partnership on all levels is critical to the success of GSA. Strong 

partnerships with partner agencies and vendors alike are critical and lead to good business 

decisions that create value and savings for our customers and the American public. It is our 

commitment to ensure that doing business with GSA is an easy and reliable experience. We 

are continuously improving our processes and systems to make them as simple and 

streamlined as possible.

3. Expanding Opportunities for Small Businesses. Small businesses are the engines that 

power the American economy. Contracting with these entrepreneurs is a win-win for both the 

federal 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 and through the contracts we award for other agencies.

4. Making a More Sustainable Government. Going green saves green. Environmentally 

friendly practices are good for the environment and for business. GSA is committed to both. 

As we work toward implementing sustainable practices and making our buildings and our 

fleet more environmentally-friendly, we will continue to work with vendors to make 

sustainable products and services readily available and affordable.

5. Leading with Innovation. GSA is a leader of innovation in public service. Among many 

firsts, we were the first government agency to move to cloud computing, setting an example 

for others to follow. In the coming years, we will continue to develop innovative, cost saving 

solutions that will be shared across the government.

6. Building a Stronger GSA. We must make sure our own employees at GSA are getting the 

same high quality support that we give our partner agencies. Offering the very best training 

and resources to our employees will be the cornerstone of this effort. By doing so, the 

agency will better serve its employees, while continuing to ensure that our customers receive 

great service. We will guarantee that when we do something, we will do it once and do it 

well.

Organizational Structure

GSA provides the spaces, services, and goods required 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 to 
U.S. General Services Administration 

Annual Performance Plan and Report

APR-5

government organizations and the military. Our policies promote management best practices 

and efficient government operations. We serve more than 60 federal agencies and departments 

through 11 regional offices and are organized into the 16 services and staff offices highlighted 

below.

Federal Acquisition Service (FAS) - FAS provides federal agencies over 11 million 

different products and services, and annually delivers over $54 billion in information 

technology solutions and telecommunications services, assisted acquisition services, travel 

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

cards. FAS manages over 205 thousand leased vehicles, more than 3.5 million charge 

cards, and provides personal property disposal services facilitating the reuse of $1 billion in 

excess/surplus property annually. FAS leverages the buying power of the federal 

government by negotiating prices on many products and services required by federal 

agencies for daily operations. By arranging a network of service providers, FAS is able to 

meet the operating and mission requirements of a vast array of federal agencies and state, 

local, and tribal governments. 

Public Buildings Service (PBS) - PBS activities fall into two broad areas: workspace 

acquisition and property management. PBS acquires space on behalf of the federal 

government through new construction and leasing, and acts as a caretaker for federal 

properties across the country. As the largest public real estate organization in the United 

States, PBS owns or leases 9,011 assets and maintains an inventory of more than 378

million square feet of rentable workspace for 1.1 million federal employees. Within this 

inventory, PBS has 647 owned and leased historic properties. PBS provides high quality 

facility and workspace solutions to more than 60 federal agencies, disposes of excess or 

unneeded federal properties, and promotes the adoption of innovative workplace solutions 

and technologies. Through lease and purchase transactions, PBS delivers the workspace 

necessary to meet the respective missions of its federal customers. PBS is working with its 

federal customers to design the workplace of the 21st Century, seeking to reduce overall 

workspace needs and associated costs. These services are also coordinated to obtain the 

best available pricing.

Office of Citizen Services and Innovative Technology (OCSIT) - OCSIT makes federal 

government information and services more readily available to the public, and makes it 

easier for the public to conduct transactions with the federal government. OCSIT also 

identifies, tests and deploys innovative technologies for the government to provide shared, 

transparent and cost effective means to disseminate information and conduct business. 

OCSIT provides access to a wide range of government services as well as consumer 

protection information through the official web portals of the federal government, USA.gov 

and GobiernoUSA.gov. OCSIT works closely with other government agencies – federal, 

state, local, and international – to collect and consolidate information and make it available 

to the public, sharing experiences that lead to better solutions.

Office of Government-wide Policy (OGP) - OGP uses policies, information and ideas to 

help agencies drive efficiency, savings and improved mission performance in key 

administrative areas: including travel and transportation, acquisition, information technology, 

and green buildings. OGP helps drive agency behavior in these administrative areas 

through governmentwide policy-making, performance standards, analysis and 

benchmarking of data, and regular reporting to the agencies and key stakeholders.

Staff Offices - The GSA staff offices support the enterprise. They ensure GSA is prepared 

to meet the needs of customers, on a day-to-day basis and in crisis situations. GSA has two 
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independent staff offices (Office of the Inspector General, Civilian Board of Contract 

Appeals), and eleven GSA staff offices (Office of Administrative Services, Office of 

Congressional and Intergovernmental Affairs, Office of the Chief Financial Officer, Office of 

the Chief Information Officer, Office of Human Resource Management, Office of General 

Counsel, Office of Mission Assurance, Office of the Chief Acquisition Officer, Office of 

Communications and Marketing, Office of Civil Rights and the Office of Small Business 

Utilization).

The GSA organizations support the 22 programs defined in the FY 2013 GSA Program 

Inventory published on www.performance.gov and summarized below. Each GSA service and 

staff office supports one or more of the programs listed below.

Office of the 

Administrator

Real Property 

Bureau

Supply and Technology 

Bureau

General Management

Bureau

Construction and Acquisition of 

Facilities Program

Assisted Acquisition 

Program

General Management and 

Support Services Program

Repairs and Alterations 

Program

Integrated Technology 

Services Program

Government-wide Policy 

Program

Rental of Space 

Program

General Supplies and 

Services Program

Operating Expense 

Program

Building Operations 

Program 

Travel, Motor Vehicle and 

Card Services Program

Electronic Government 

Program

Real Property Relocation 

Program

Federal Acquisition Service 

Integrator Offices

Acquisition Workforce Training 

Program

Real Property Disposal 

Program

Integrated Award Environment

Program

Citizen Services and Innovative 

Technologies Program

Transportation Audits 

Program

Inspector General 

Program

Former Presidents 

Program

Presidential Transition 

Program

Strategic Framework

The GSA strategic framework is defined in the GSA Strategic Plan and is presented below. In 

accordance with the OPM memo titled Revising the Human Capital Planning, Reviews, and 

Reporting Framework (April 26, 2013), GSA incorporated the human capital objectives, 

strategies and performance goals.
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GSA Strategic Framework

The GSA Mission is to deliver best value in real estate, acquisition, and 

technology services to government and the American people

STRATEGIC GOALS

1. SAVINGS

Provide savings to federal 

departments and agencies

2. EFFICIENCY

Improve the efficiency of

operations and service delivery

3. SERVICE

Deliver excellent

customer service

PRIORITIES

Delivering 

Better Value 

and Savings

Making a More 

Sustainable 

Government

Building 

a

Stronger GSA

Leading 

with 

Innovation

Serving 

Our 

Partners

Expanding 

Opportunities for 

Small Businesses

STRATEGIC OBJECTIVES AND PERFORMANCE GOALS

1.1 Deliver contracting solutions to 

generate customer savings

Generate savings through Federal 

Strategic Sourcing Initiative *

Reduce the Global Supply blended 

markup

Procure lease space at below industry 

market rates

Realize savings through Integrated 

Technology Service solutions

1.2 Improve the federal utilization of 

space

Reduce the federal footprint *

Reduce vacant space in the 

government-owned and leased 

inventory 

1.3 Reduce resource use and 

environmental impact 

Green the federal supply chain

Reduce total water consumption 

Reduce total energy purchased 

Reduce use of petroleum-based fuel

Purchase alternative fuel vehicles 

Provide useful energy efficiency 

information and tools provided to 

federal agencies

2.1 Increase the efficiency of GSA 

operations

Improve the efficiency of GSA 

operations 

Reduce indirect costs

Achieve full cost recovery in the GSA 

leasing program

Complete new construction projects 

on schedule 

Deploy civilian acquisition workforce 

training courses efficiently

Timely award of public sale properties 

and non-competitive sales and 

donations

2.2 Enhance asset management 

Achieve an appropriate return on 

equity for government-owned 

properties

Provide building cleaning and 

maintenance at competitive costs 

3.1 Enhance relationships with 

our customers, suppliers and 

stakeholders

Improve customer satisfaction 

with government-owned and 

leased space

Achieve customer loyalty and 

supplier satisfaction for 

acquisition services

Implement effective policy 

initiatives 

Drive greater transparency and 

innovation in government 

Increase citizen engagement 

with federal agencies

3.2 Support small and 

disadvantaged business 

Meet small business prime and 

subcontracting goals

Meet small business targets on 

Multiple Award Schedules

MANAGEMENT OBJECTIVES AND PERFORMANCE GOALS

M.1 Deliver a mission ready workforce

Reduce the time to hire

Increase employee engagement 

M.2 Streamline information technology and improve data 

quality and reporting

Successfully implement enterprise information technology 

services 

* Agency priority goal
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Performance Overview: 

Strategic Goals, Objectives and 

Performance Indicators

FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Strategic Goal 1: Provide savings to federal departments and agencies

Strategic Objective 1.1: Deliver contracting solutions to generate savings

Federal Strategic Sourcing Initiative 

savings in millions (New) * ↑ $68 $93 $108$108 $111 $144 Target Met

Federal Strategic Sourcing Initiative 

business volume in billions ** ↑

$337M $423M $412M - - NA

Global Supply blended markup ↓ 29.8% 28.1%

26.0%

24.7% 22.5% 18.5% Target Exceeded

Cost of lease space relative to market 

rates↓ -12.9% -11.5% -9.5%-10.1% -9.5% -9.5% Target Exceeded

Integrated Technology Service cost 

savings in billions↑ $1.05 $1.36 $0.96$1.37 $0.99 $1.02 Target Exceeded

Strategic Objective 1.2: Improve the federal utilization of space

Reduction in amount of rentable square 

feet in replacement leases (New) *↑

Not 

Available

Not 

Available Baseline 3.0% 5.0% NA

Agencies with completed client portfolio 

plans *↑

3 6

9

9

12 15 Target 

Met

Percent of vacant space in inventory↓ 3.4% 3.0% 3.2%

3.8% 3.2% 3.2% Target Not Met

Strategic Objective 1.3: Reduce resource use and environmental impact

Percent green business volume↑ 2.2% 6.9% 5.0%

4.7% 6.0% 7.0%

Target 

Not Met

Total water consumption in billions of 

gallons↓

3.11 2.95 2.78

2.66 2.71 2.65 Target Exceeded

Total energy purchased in trillion BTUs↓ 18.36 18.17 18.22

16.28 18.13 18.03 Target Exceeded

Energy intensity in thousand BTUs per 

gross square foot **↓

62.2 58.1 57.9 - - NA

Annual use of petroleum-based fuel in 

millions of gallons↓

405.5 380.4 380.2

366.9 372.6 365.2 Target Exceeded

Percent alternative fuel vehicles 

purchased↑

80% 75% 80%

82% 80% 80% Target Exceeded

Usefulness of energy efficiency 

information and tools provided to federal 

agencies ↑

65% 78% 70%

70% 75% 80% Target Met

Strategic Goal 2: Improve the efficiency of operations and service delivery

Strategic Objective 2.1: Increase the efficiency of GSA operations

Operating costs as a percentage of 

goods and services provided (New) ↓

9.99% 10.03% 9.60%

9.60% 9.4% 9.2% Target Met

Reduction in total GSA indirect costs 

from the FY 2010 baseline in millions 

(New) ↑

$136 $115 $132

$132 $155 $200 Target Met

Percent of leased revenue available after 

administering program ↔

-0.3% -0.3% 0-2%

-0.09%

0-2% 0-2% Target 

Not Met

New construction projects on schedule↑ 83% 93% 90%

100% 90% 90% Target Exceeded

Desired direction: ↑= increasing ↓= decreasing ↔ = within range * Priority Goal Indicator ** Contextual Indicator
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Strategic Goals, Objectives and 

Performance Indicators

FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Strategic Objective 2.1: Increase the efficiency of GSA operations - continued

Attendance levels for Federal Acquisition 

Institute training courses↑ 75% 86% 80%89%

80% 80% Target 

Exceeded

Percentage of public sale properties 

awarded within 135 days↑ 100% 100% 90%98% 90% 90% Target Exceeded

Percentage of non-competitive sales and 

donations awarded within 220 days↑ 95% 91% 90%88% 90% 90% Target Not Met

Strategic Objective 2.2: Enhance asset management

Percent of government-owned properties 

achieving a return on equity of at least 

six percent↑

76.1% 71.8% 78.9%

72.4% 78.9% 78.9% Target Not Met

Cost of cleaning and maintaining space 

against private sector benchmarks ↔

0.1% 3.7% +/-5%

3.1% +/-5% +/-5% Target Met

Strategic Goal 3: Deliver Excellent Customer Service

Strategic Objective 3.1: Enhance relationships with customers, suppliers and stakeholders

Tenant satisfaction with governmentowned and leased space↑

76% 73% 83%

63% 75% 77% Target Not Met

Customer loyalty with acquisition 

services↑

8.0 7.6 7.6

8.3 7.8 8.0 Target Not Met

Supplier satisfaction with acquisition

services (New) ↑

Not 

Available 3.00

3.05

3.05 3.10 3.15 Target Met

Percent of key policy stakeholders who 

rate policy initiatives effective↑

84% 86% 80%

Not Avail 85% 85% NotAvailable

Cumulative number of innovative 

solutions↑

0 5

10

10 15 20 Target Met

Citizen touch points in millions↑ 272 539 674

1,018 1,119 1,231 Target Exceeded

Strategic Objective 3.2: Support small and disadvantaged business

Percent of dollars awarded to small 

business prime contracting (New) ↑

34.2% 40.1% 30.0%

37.0% 40.0% ***

Target 

Exceeded

Percent of dollars awarded to small 

business through subcontracting (New) ↑

32.1% 26.0% 25.0%

24.6% 25% ***

Target 

Not Met

Percent of MAS business volume from 

small businesses ↑

33.5% 34.0% 33.0%

34.7% 33.0% 33.0% Target Exceeded

Management Objectives

Management Objective 1: Deliver a mission ready workforce

Time to hire (in days) (New) ↓ 89 96 80

86 80 80 Target Not Met

EVS Employee Engagement Score 

(New) ↑

71% 69%

69%

69% 71% 72%

Target 

Met

Management Objective 2: Streamline information technology and improve data quality and reporting

Number of consolidated enterprise 

information technology services 

successfully implemented (New) ↑

0 0

2

2

3 4

Target 

Met

Commodity information technology 

savings** ↑

- - 6% - - NA

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range ** Contextual Indicator

*** FY 2015 plan to be determined based on negotiations with Small Business Administration
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Cross-Agency Priority Goals

In accordance with the GPRA Modernization Act requirement to address Cross-Agency Priority 

(CAP) Goals in the agency strategic plan, the annual performance plan, and the annual 

performance report, please refer to www.performance.gov for the agency’s contributions and 

progress towards CAP Goals, where applicable. GSA currently contributes to the following CAP 

Goals: Cybersecurity, Sustainability, Real Property, Improper Payments, Closing Skill Gaps, 

Strategic Sourcing, Open Data and Data Center Consolidation.

Agency Priority Goals 

GSA had three priority goals for the FY 2012-2013 reporting period. These goal statements are 

presented below; details on the priority goal strategies, progress updates, indicators 

performance, next steps and contributing programs are reported on www.performance.gov and 

included in Appendix A.

1. Manage customer agency real estate portfolio needs in a cost-effective and 

environmentally sustainable manner

By September 30, 2013, GSA will complete and begin implementation of client portfolio 

plans with nine agencies to identify opportunities and develop action plans to optimize 

their real estate portfolios through reducing space, improving utilization and leveraging 

market opportunities to reduce costs. 

2. GSA will drive greater transparency and openness in government

By September 30, 2013, GSA will develop at least 10 new innovative, cost effective 

information technology solutions that increase government openness, including solutions 

to serve businesses with one-stop access to federal services, provide the public 

information about federal performance, engage the public in providing expertise on 

specific problems to federal agencies, provide effective registration and management of 

government web sites, and streamline and leverage security assessments of innovative 

cloud computing products and solutions.

3. GSA will increase the sustainability of the Federal Supply Chain

By September 30, 2013, GSA will increase the sustainability of the federal supply chain 

by expanding the number of “green” product and service offerings available to federal 

customers by 10 percent, and increasing the purchasing of GSA green products and 

services to 5 percent of total business volume.

GSA defined two priority goals for the FY 2014-2015 reporting period. These goal statements 

are presented below; details on the priority goal strategies, progress updates, indicators 

performance, next steps and contributing programs are reported on www.performance.gov and 

included in Appendix B.

1. Generate savings through Federal Strategic Sourcing Initiative

By September 30, 2015, GSA will save $255M ($111 million during FY 2014 and $144 

million during FY 2015) through the use of Federal Strategic Sourcing Initiative (FSSI).

2. Reduce the federal footprint

By September 30, 2015, GSA will reduce the aggregate amount of leased space by 5

percent for replacement leases. GSA will also work with agencies to complete a total of 

15 client portfolio plans (three new plans each year) to identify opportunities for agencies 

to optimize their real estate portfolios.
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Strategic Goal 1: Provide savings to federal departments and agencies 

GSA will strengthen federal capabilities to leverage the purchasing power of the government to 

offer the most cost-effective solutions. Two areas of focus will be improving federal utilization of 

space and increasing savings through strategic sourcing. GSA will continue to promote cost 

savings through the sustainable usage of space, travel, fleet, technology and resources. GSA 

will also continue to test new technologies, workplaces, and other solutions, and share the best 

practices with other agencies to generate savings.
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Strategic Objective 1.1: Deliver contracting solutions to generate customer savings

GSA will effectively leverage existing, and develop new, federal strategic sourcing initiatives to 

provide competitively priced solutions to drive savings in technology, real property and other 

acquisitions throughout the federal government. Through these solutions, GSA will be able to 

leverage governmentwide business volume for better pricing, and standardize contracting terms 

and conditions in order to reduce the cost of purchasing across government.

Strategic Objective Goal Leaders: 

Tom Sharpe, Commissioner, Federal 

Acquisition Service (Lead Office)

Dorothy Robyn, Commissioner, Public 

Building Service 

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors that could impact progress on this 

objective will be monitored and include changes to customers budgets, approval of new federal 

strategic sourcing offerings, and competition within industry for the goods and services we 

provide. These and other external factors are considered as new strategies are established. The 

current strategies for this objective include:

1. Continue to assess government purchasing and supply markets to develop federal 

strategic sourcing initiatives that provide our customers with services and equipment, at an 

excellent value, from suitable suppliers using standard solution pricing menus. 

2. Use standard solutions and pricing with qualified suppliers to make it easier for agencies 

to meet their acquisition needs with minimal administrative demands, and, in turn, allow 

agencies to focus their time and resources towards their core mission-critical operations.

3. Promote the use of strategic sourcing solutions by our customers and work with our 

federal partners and industry to develop solutions for a broader array of products and 

services.

4. Reduce the operating costs for providing supplies to customers, which in turn will lead to 

customer savings.

5. Continue to use solutions such as Smartbuy, Networx Services and Reverse Auctions to 

provide customers with significant savings for information technology and 

telecommunications services and equipment.

6. Continue to develop and refine real estate market analysis tools and leasing processes to 

offer our customers leased workspace, when needed, at an excellent value.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Assisted Acquisition

Electronic Government

General Supplies and Services

Integrated Award Environment

Integrated Technology Services

Rental of Space

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. GSA is committed to finding new ways to deliver best 

costs. One example of this is GSA’s strategic sourcing initiative. Strategic sourcing creates 

savings by getting agencies to collectively commit to purchasing certain commodities at the best 

value. By buying once and buying well, strategic sourcing has saved the American public more 

than $300 million since 2010. GSA was able to deliver $1.37 billion in savings by providing 

technology solutions at prices that are below prices available from other sources.
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We are also responding to the needs of our partners by developing tools like One Acquisition 

Solution for Integrated Services (OASIS). OASIS will be a one stop shop for key professional 

services and will allow for one contract with multiple areas of professional services. Ambitious, 

multibillion dollar professional services contracts such as this is key to GSA’s future. OASIS is a 

way of responding to customer concerns while delivering multipart service results.

GSA continues to provide workspace at a great value to federal agencies and departments. In 

FY 2013, GSA negotiated leases at a weighted average of 10.1 percent below market rate, 

achieving an estimated $29.2 million in annual cost savings to the government on assessed 

leases. 

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

Deliver new and update existing Federal Strategic Sourcing Initiative offerings;

Research and assess additional products or service areas that are well suited for 

Federal Strategic Sourcing Initiative solutions;

Continue to negotiate the lowest possible lease rates for its customer agencies;

Reduce overhead and other costs from operations; and

Deliver additional savings to the Federal Government through the SmartBUY and 

Network Services programs. The SmartBUY program negotiates government-wide 

enterprise licenses for software commercial off-the-shelf software that is generally 

acquired using license agreements with terms and prices that vary based on volume.

A key external factor is, in many cases, federal agencies are not required to use GSA for their 

procurement. GSA will focus on providing the best, most cost-effective procurement solutions

to attract business, and will support the Administration’s priority to reduce contract duplication 

across the Federal Government.
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Annual Performance Plan and Report

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Performance Goals.

Strategic Objective 1.1: Deliver contracting solutions to generate savings

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 1.1.1 - Generate Savings through Federal Strategic Sourcing Initiative (New) *

Federal Strategic Sourcing Initiative Savings 

in millions (New) * ↑ $68M $93M $108M$108M $111M $144M Target Met

Federal Strategic Sourcing Initiative 

Business Volume in millions (Discontinue) ↑

$337M $423M

$484M

$412M

- -

Target 

Not Met

Performance Goal 1.1.2 - Reduce the Global Supply blended markup (Updated Methodology)

Global Supply blended markup ↓ 29.8% 28.1%

26.0%

24.7% 22.5% 18.5% Target Exceeded

Performance Goal 1.1.3 - Procure lease space at below industry market rates

Cost of lease space relative to market rates↓ -12.9% -11.5% -9.5%

-10.1% -9.5% -9.5% Target Exceeded

Performance Goal 1.1.4 - Achieve savings through Integrated Technology Service solutions

Integrated Technology Service cost savings 

in billions↑ $1.05 $1.36 $0.96$1.37 $0.99 $1.02 Target Exceeded

Performance Goal 1.1.5 - Procure Vehicles at below Invoice (Discontinue)

Selling Price Discount Below Invoice

(Discontinue) ↑

19.83% 17.6% 18.6%

18.2% - -

Target 

Not Met

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range * Priority Goal Indicator
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Performance Goal 1.1.1 - Generate Savings through Federal Strategic Sourcing Initiative

(New) 

GSA will save customer agencies and departments $111 million in FY 2014 and 

$144 million in FY 2015 through the use of Federal Strategic Sourcing Initiative. 

Federal agencies purchase over $500 billion of goods and services annually. A key vehicle used 

by GSA, and other top purchasing federal government agencies, to promote cost savings, 

improved management visibility and adoption of best practices, has been the Federal Strategic 

Sourcing Initiative (FSSI). Established in 2005, FSSI is designed to improve government

management of commonly purchased goods and services. FSSI provides customers with 

significant savings, decreases administrative redundancy, and improves business intelligence 

while meeting or exceeding small business and sustainability goals. For more information on the 

policies governing Federal Strategic Sourcing Initiative, go to 

www.strategicsourcing.gov/polices-memos.

GSA is focused on informing customers of the benefits of using FSSI solutions, including: 

savings opportunities, the ability to help meet socioeconomic goals and improved operating 

efficiencies. GSA is actively engaged in coordinated efforts to educate agencies regarding the 

benefits of FSSI solutions. In addition to increasing adoption, GSA will focus on generating 

savings by:

Leveraging information available through existing data sources to negotiate better prices;

Critically analyzing spending patterns to enhance business intelligence while applying this 

intelligence to FSSI initiatives within GSA;

Reengineering business processes to identify operational efficiencies that will reduce 

costs to agencies;

Sharing information, such as prices paid under FSSI and other federal contracts to 

increase savings opportunities; and

Increasing adoption of industry and government agency best practices.

Barriers and challenges related to usage of these solutions include:

Agencies may have duplicative solutions in place or attempt to create duplicative 

solutions;

Agencies may have trouble identifying usage or key users in order to spread information 

relating to the solutions; and

Some agencies may have unique requirements or better pricing and this is considered a 

legitimate reason for not using Federal Strategic Sourcing Initiative solutions.

Benefit to the Public. GSA will effectively leverage existing FSSIs and develop additional FSSI 

solutions to provide competitively priced solutions that drive savings in both commoditized and 

service related categories.

Performance and Contextual Indicators.

Federal Strategic Sourcing Initiative Savings in millions. This performance indicator is defined 

as savings through any official GSA-led or GSA co-led awarded Federal Strategic Sourcing 

Initiative solution. Solutions include:

Current solutions: Office Supplies, Domestic Delivery Services, Print Management, and 

Wireless;

Future generations of current solutions including Large Desktop Software Publisher 

(SmartBUY) will be included upon award; and
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Expiring solutions: The FSSI Telecommunications Expense Management Services is 

expected to expire in fiscal year 2014; spend against this solution will be included until 

expiration.

Federal Strategic Sourcing Initiative Business Volume in millions. This contextual indicator 

measures Federal Strategic Sourcing Initiative business volume in millions of dollars. This 

indicator was previously reported as a performance indicator but is being discontinued due to 

the introduction of the agency priority goal measuring FSSI savings. This indicator is defined as 

the business volume through any official GSA-led or GSA co-led awarded Federal Strategic 

Sourcing Initiative solution and includes the same set of offering defined in the FSSI savings 

indicator. 

Progress Update. GSA delivered $412 million in Business Volume in FY 2013 for its FSSI 

solutions compared to a target of $484 million. This business volume translates to $108M in 

savings achieved through the use of FSSI in FY 2013. There are several reasons that the target 

was not achieved, adoption rates for the solutions have not been as high as anticipated when 

this target was established and the roll out of the solutions were delayed by several months for 

various reasons - from protests, extended market research sessions, solution supporting 

multiple channels, and shift in program management. These factors in addition to the overall 

reduction in spend in the cost categories supported by the GSA FSSI solutions have lead to 

reduced business volumes being achieved compared to FY 2012 and the targeted FY 2013 

levels. Now that GSA has greater visibility into the spend patterns of agencies and the budget 

realities of the current fiscal environment the targets for FY 2014 and beyond have been 

adjusted to be in-line with these factors.

As a result of the contributing factors identified above, GSA revised out-year business volume 

targets. While contraction of the federal budget has reduced overall spend on many of the 

goods provided through FSSI, GSA worked actively with stakeholders and customers to 

increase the business conducted through these solutions. Increasing business through these 

solutions can result in lower prices negotiated with suppliers. FSSI performance is reported 

publicly at https://strategicsourcing.gov/.

GSA will effectively leverage existing FSSIs and develop additional FSSI solutions to provide 

competitively priced solutions that drive savings in both commoditized and service related 

categories. Partnering with stakeholders to change buying behavior throughout the government 

is a fundamental requirement to achieving the target. Support of agencies on the Strategic 

Sourcing Leadership Council as well as the 24 Chief Financial Officers Act agencies for each 

solution is also required.

The GSA historic performance results for this indicator have been adjusted to include the 

Telecommunications Expense Management Solution. As a result, FY 2011 actual increased 

from $308 million to $337 million, the FY 2012 actual increased from $409 million to $423 

million. 

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-17

Performance Goal 1.1.2 - Reduce the Global Supply blended markup (Updated 

Methodology)

GSA will reduce the Global Supply blended markup from 24.7 percent in FY 2013 

to 22.5 percent in FY 2014 and to 18.5 percent in FY 2015. 

The Global Supply Program is transforming its business model to drive increased efficiencies 

and customer savings into the supply chain by moving away from the use of warehouses and 

toward vendor direct delivery. 

Benefit to the Public. Lowering the overall cost of the program allows for reduced rates and 

costs for customers, which translates to savings to the Federal Government and the American 

public.

Performance and Contextual Indicators.

Global Supply blended markup. Global Supply blended markup is an aggregate combination of 

mark-ups (fees) for the methods of supply for Special Order Programs, Direct Delivery, 

Expanded Direct Delivery and Stock. This performance indicator will track the reduction in fees 

charged to the customer as the Global Supply Program transitions to a new direct vendor 

delivery model. Lowering the overall cost of the program allows for reduced rates and costs for 

customers, which translates to savings to the federal government and the American public.

GSA updated the calculation methodology for this measure in FY 2013 remove pass-through 

transportation costs, which are not included in the cost of goods sold. An adjusted gross margin 

is used to calculate the blended mark-up to account for reimbursable outbound transportation 

expenses that are not included under the total cost of goods and services sold. These 

reimbursable expenses pertain primarily to business conducted through the Central Asia 

Sourcing program, which is reflected in the Special Order Programs method of supply only. A 

slight change to the calculation removes Special Order Programs ‘other surcharges’ from the 

total revenue. This represents pass-through transportation costs and must be removed because 

the initial transportation costs paid by GSA are not included in the cost of goods. 

Applying the updated methodology to past performance increases the FY 2011 Actual from 27.8 

percent to 29.8 percent and the FY 2012 Actual from 28.1 percent to 28.5 percent. An adjusted 

gross margin is used to calculate the blended mark-up to account for reimbursable outbound 

transportation expenses that are not included under the total cost of goods and services sold. 

Progress Update. GSA reduced the Global Supply blended markup from 28.5 percent in FY

2012 to 24.7 percent in FY 2013. This exceeded the target reduction of 26 percent. GSA will 

continue to seek the most efficient channels to provide goods to customers in the future. 

Through channeling product delivery through lower cost supply channels the markup required to 

cover program cost will be further reduced, generating savings to customer agencies.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 1.1.3 - Procure lease space at below industry market rates 

During FY 2014 and FY 2015 GSA will procure lease space, on average, at 9.5 

percent below market rates.

GSA is committed to delivering cost savings to our client agencies and best value to the 

American public. By negotiating lease rates at or below market, GSA can realize savings for the 

American public. The goal is to negotiate the best deal possible.

Benefit to the Public. Consistently paying lease rates at or below comparable market rates 

ensures that GSA acquires federal office space at the best value for the taxpayer.

Performance and Contextual Indicators.

Cost of lease space relative to market rates. This performance indicator compares GSA leasing 

costs to private sector benchmarks for equivalent space for leases that are at least 75 percent 

office space. Negotiating lease rates at or below market rates for comparable space generates 

cost savings for the American public.

Progress Update. In FY 2013 GSA procured lease space at 10.1 percent below industry 

market rates – exceeding the target of 9.5 percent. Overall performance was strong as our 

leasing program negotiated leases at a weighted average of 10.1 percent below market in FY

2013.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-19

Performance Goal 1.1.4 - Achieve savings through Integrated Technology Service 

solutions 

GSA will save customer agencies and departments using GSA Integrated 

Technology Services $0.99 billion in FY 2014 and $1.02 billion in FY 2015. 

GSA’s focus is saving taxpayer dollars by negotiating and delivering lower cost solutions to our 

customer agencies through our Integrated Technology Services. 

Benefit to the Public. Achieving this goal will result in savings generated through large 

nationwide information technology programs and enable customer agencies to meet mission 

critical needs at a lower cost.

Performance and Contextual Indicators.

Integrated Technology Service cost savings in billions of dollars. This performance indicator 

measures the Integrated Technology Service cost savings in billions and estimates the cost 

savings that customers realize by using Integrated Technology Service SmartBUY and Network 

Services programs as compared to their respective price benchmarks. SmartBUY is a strategic 

sourcing solution for purchasing software and related services. Savings are calculated as the 

difference between the GSA Schedule price and the SmartBUY negotiated price, multiplied by 

the total number of units ordered. Network Services is a business line that offers 

telecommunications and related services to Federal agencies. Savings are calculated as the 

difference between commercial pricing for comparable services and terms and conditions with 

GSA contract pricing for all services GSA provided. This element is calculated by following a 

rigorous pricing benchmark that compares commercial pricing for comparable services and 

terms and conditions with GSA contract pricing. Because of the limits to commercial pricing data 

available in the public domain, GSA obtains up-to-date, proprietary pricing data from a thirdparty consultant.

Progress Update. GSA exceeded its target of providing $1 billion in savings and delivered

savings of $1.37 billion to customers in FY 2013.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 1.1.5 – Procure Vehicles at below Invoice (Discontinue)

GSA negotiates contracts annually with automotive manufacturers to provide customer 

agencies with value pricing. GSA continues to aggregate the purchasing power of the 

government to achieve savings on automobile purchases, but will discontinue reporting as an 

external goal.

Benefit to the Public. Due to the high volume of vehicles procured, we are able to leverage the 

government's buying power to negotiate low pricing, and pass the savings on to federal 

customers.

Performance and Contextual Indicators.

Selling Price Discount Below Invoice. This performance indicator measures the savings 

quantified by tracking the selling price discount below invoice. The selling price discount below 

invoice is defined as the savings received by the government from the manufacturer’s invoice 

price discount for the vehicles purchased through GSA. To calculate the estimated savings GSA 

determines the percent discount achieved from the top selling vehicles, which are determined 

by identifying the vehicle make and models with sales greater than 1,000 vehicles in each 

vehicle type. This measure identifies the percentage of cost savings to the Federal Government 

off the invoice price for the top selling vehicles, and communicates the cost savings that is 

realized on behalf of the government and American public on an annual basis for vehicle 

purchases

Progress Update. In FY 2013 GSA procured vehicles at 18.2 percent below invoice, and did 

not meet the target of 18.6 percent below invoice. Although the discount that GSA is able to 

negotiate off the manufacturer's invoice price generates considerable savings for our 

customers, this measure is in direct conflict with increasing the percentage of alternative fuel 

vehicles that are purchased compared to total automotive purchases. Alternative fuel vehicles 

are considerably more expensive than standard automobiles and the discount that GSA is able 

to negotiate is minimal due to market conditions and vehicle demand. Encouraging alternative 

fuel vehicle purchases across government is consistent with Executive Orders and the 

Administration’s continued focus on sustainability.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-21

Strategic Objective 1.2: Improve the federal utilization of space

GSA is leading efforts to improve asset utilization, reduce agency space requirements, 

effectively manage real property, and pursue innovative proposals to leverage resources. We 

are a government-wide leader and expert in real estate solutions. We will assist and educate 

federal departments and agencies to develop plans that will assist agencies with consolidating 

their space to reduce their footprint.

GSA is encouraging agencies to reduce space to minimize costs. We use a variety of tools, 

strategies, and portfolio planning options to determine the optimal housing solutions for 

agencies. We are also targeting our large, more costly new construction, major repairs and 

alterations, and leasing prospectus projects. By working with customer agencies, GSA will 

identify opportunities to optimize federal real estate portfolios by reducing space, improving 

utilization, disposing of underutilized assets, and leveraging market opportunities to reduce the 

footprint and investment and operating costs.

GSA supports the Office of Management and Budget’s “Freeze the Footprint” policy – aimed at 

maintaining governmentwide square footage for offices and warehouses – by collecting 

governmentwide data and conducting analysis to assess the performance of each agency 

towards meeting the national goal.

Strategic Objective Goal Leaders.

Dorothy Robyn, Commissioner, Public 

Building Service (Lead Office)

Anne Rung, Associate Administrator, 

Office of Government-wide Policy

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Use of the client portfolio plans process to develop and implement space saving 

opportunities with demonstrated value for both the client and GSA. These plans create 

value by proposing solutions which align Administration, Client Agency and GSA goals, 

and help optimize an agency’s existing portfolio while more effectively anticipating, 

capturing, and advising on future portfolio needs.

2. Where it is advantageous to the federal government, work to house tenants in federally 

owned space, rather than leasing from the private sector.

3. Minimize the amount of vacant space in the inventory and increase the utilization of 

existing space.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

• Assisted Acquisition

• Building Operations

• Construction and Acquisition of 

Facilities

• Government-wide Policy

• Integrated Technology Services

• Operating Expense

• Real Property Disposal

• Real Property Relocation 

• Rental of Space

• Repairs and Alterations

Strategic Objective Progress Update. GSA plays a key and essential role in supporting the 

President’s directive to Freeze the Federal Footprint. As a part of this effort, GSA’s Total 

Workplace initiative is providing resources and expertise to encourage federal agencies to 
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Annual Performance Plan and Report

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reduce their office space, foster collaboration, better manage information technology spending, 

and increase energy efficiency. Ultimately, in a time of shrinking budgets, this initiative will save 

taxpayer dollars and allow agencies to invest more in their missions and better serve the 

American people.

GSA has completed a cumulative total of nine customer real estate portfolio plans for federal 

customers. In FY 2013, GSA completed plans for the Environmental Protection Agency (EPA), 

Immigration and Customs Enforcement (ICE) and the Federal Aviation Administration (FAA). 

GSA’s work to implement client portfolio plan opportunities on behalf of individual agencies has 

been successful.

GSA also worked closely with the Federal Emergency Management Agency (FEMA) to 

significantly reduce their real estate footprint. FEMA requested that GSA’s client portfolio plan

team help FEMA meet their $10 million rent budget reduction. By developing a nationwide 

portfolio strategy, GSA identified nearly $12 million in annual rent cost avoidance. FEMA agreed 

with the recommended strategies, including a consolidation of five leases into FEMA 

headquarters in Washington, DC. Before this consolidation, FEMA leased over 625,000 in 

rentable square feet, costing approximately $30 million annually. By embracing innovative 

workplace strategies, FEMA is working with GSA to reduce the portfolio by over 200,000 

rentable square feet, saving $9.7 million in annual rent. This savings represents a 33 percent 

reduction of FEMA’s DC portfolio and 11 percent reduction of FEMA’s nationwide portfolio.

Additionally, GSA leveraged funding from the American Recovery and Reinvestment Act of 

2009 to help improve space utilization in federally owned buildings. GSA completed new 

construction and major repair and alterations projects to reduce costly leased space and 

improve consolidation. For example, in FY 2013, GSA made its headquarters in Washington, 

DC into a testing ground for a new kind of federal workplace with Recovery Act funding. By 

transforming conventional office space into a collaborative, flexible work environment, GSA is 

demonstrating to our client agencies how agencies can better utilize space and reduce costs. 

GSA is saving over $24 million a year by reorganizing its workspace and expanding workspace 

use to approximately 3,300, from 2,000 employees, and vacating leases that are no longer 

required. 

GSA continues to be successful in keeping vacancy rates low in its owned and leased real 

property portfolio. Nationally, GSA’s vacancy rate is 3.8 percent, far below the private sector 

average of 16.9 percent. Agencies are looking to freeze or reduce their federal footprint as part 

of the administration’s Freeze the Footprint initiative. As an agency priority goal, GSA will 

continue to work with its federal customers to optimize their use of federal space while meeting 

their changing needs.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

Reduce the amount of rentable square feet by an aggregate of five percent for replacement 

leases.

Complete and begin implementing client portfolio plans with six additional agencies to 

identify opportunities and develop action plans to optimize real estate portfolios.

Work with agencies to develop policies and implement practices that freeze the federal 

building and warehouse space at FY 2012 levels. 
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goals.

Strategic Objective 1.2: Improve the federal utilization of space

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 1.2.1 – Reduce the Federal Footprint (New)*

Reduction in amount of rentable square feet 

in replacement leases (New) *↑

Not Avail Not Avail NA

Not Avail 3% 5% Not Avail

Agencies with completed client portfolio 

plans *↑

3 6

9

9

12 15 Target 

Met

Performance Goal 1.2.2 – Reduce vacant space in the government-owned and leased inventory

Percent of vacant space in inventory↓ 3.4% 3.0% 3.2%

3.8% 3.2% 3.2% Target Not Met

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range * Priority Goal Indicator
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Performance Goal 1.2.1 – Reduce the Federal Footprint (New)

GSA will reduce the amount of aggregate leased space by three percent for 

replacement leases in FY 2014 and five percent for replacement leases in FY 2015, 

and will work with agencies to complete a total of 15 client portfolio plans (three plans 

in FY 2014 and three plans in FY 2015) to identify opportunities for agencies to 

optimize their real estate portfolios.

GSA is leading efforts to improve asset utilization, reduce agency space requirements, 

effectively manage real property, and pursue innovative proposals to leverage resources. We 

will work with agencies to increase office space utilization, which will minimize operations, 

maintenance, and investment costs. GSA’s efforts will assist the Government in reducing its 

Federal footprint and generating savings for the American public. Client portfolio plans identify 

opportunities and develop action plans to optimize the real estate portfolios of our customers.

Benefit to the Public. Improved real property planning will reduce cost and lower 

environmental footprint, and help customer agencies focus their planning and management 

resources on mission-related operations and programs. Better utilization of federal workspace 

lowers the federal government’s operational cost. GSA’s efforts will assist the federal 

government in reducing its real estate footprint and generating savings for the American public.

Performance and Contextual Indicators.

Reduction in amount of rentable square feet in replacement leases (New). This performance 

indicator measures the amount of rentable square feet reduction in replacement leases by 

calculating the space under the existing leases versus the space provided under the 

replacement leases.

Agencies with completed client portfolio plans. This performance indicator measures the 

number of client portfolio plans (CPP) that GSA has developed for customer agencies. These 

plans provide recommendations with action plans to reduce space, consolidate tenants, and 

lower leased costs by leveraging identified market opportunities. A “completed portfolio plan” is 

developed by GSA and validated by the customer agency. Each year’s target represents the 

cumulative number of plans completed to date. 

Progress Update. GSA completed nine client portfolio plans in FY 2013 for the following 

agencies: Department of State, Social Security Administration, Department of Health and 

Human Services, Department of Commerce, Securities and Exchange Commission, Federal 

Emergency Management Agency, Environmental Protection Agency, Immigrations and 

Customs Enforcement, and Federal Aviation Administration.

In the fourth quarter of FY 2013, GSA completed the implementation of four projects for four 

agencies, which will lead to more than $10 million in annual rent savings. The completed 

projects represented consolidation projects for Federal Emergency Management Agency, 

Department of Health and Human Services, and Department of State and a lease renegotiation 

to close a market gap for the Social Security Administration. Reducing space is a new indicator 

in FY 2014. GSA is helping agencies achieve significant savings in real property.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-25

Performance Goal 1.2.2 – Reduce vacant space in the government-owned and leased 

inventory

GSA will keep vacant space at or below 3.2 percent in FY 2014 and FY 2015.

GSA tracks the amount of vacant space in its owned and leased inventories monthly. Even 

though GSA vacancy has increased, it continues to remain well below the private sector where 

vacancy grew to 16.9 percent. When an agency releases space, GSA’s vacancy increases until 

it is backfilled or released from the inventory. As agencies strive to reduce the federal footprint, 

GSA’s vacancy can increase in the future as tenants release space.

Benefit to the Public. Better utilization of federal workspace lowers the federal government’s 

operational cost.

Performance and Contextual Indicators.

Percent of vacant space in the government-owned and leased inventory. This performance 

indicator reports the total unoccupied assignable square feet either as a percentage of total 

assignable square feet in the owned and leased workspace inventory. Space undergoing ontime, prospectus level renovation is excluded.

Progress Update. At the end of FY2013, GSA did not achieve this building portfolio target.

GSA’s vacancy totaled 3.8 percent, which is higher than the 3.2 percent target. Vacant space is 

impacted by the lack of funding to renovate space for future customers and agency space 

consolidations, as well as agencies releasing space reduce their real property footprint. GSA 

continues its efforts to optimize the use of federal space while meeting the changing needs of 

customer agencies and adhering to presidential mandates.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-26

Strategic Objective 1.3: Reduce resource use and environmental impact

GSA will reduce resource usage by installing and implementing energy and water efficiency 

improvements in its portfolio; procuring more fuel efficient vehicles; reducing waste generation 

and diverting waste from landfills; offering more sustainable products and services on its 

schedules; reducing business travel and making remote meeting technologies more available 

and accessible; and increasing telework and designing workspaces that increase space 

utilization. 

GSA also serves as a test-bed for innovative technologies and management practices that 

improve environmental performance while reducing costs. This will be accomplished by testing 

and, where proven effective, deploying Green Proving Ground building technologies and by 

making innovative products and services available and affordable to customer agencies. 

Strategic Objective Goal Leaders: 

Jiyoung Park, Senior Sustainability Officer (Lead)

Dorothy Robyn, Commissioner, Public Building Service 

Tom Sharpe, Commissioner, Federal Acquisition Service 

Anne Rung, Associate Administrator, Office of Government-wide Policy 

Strategies. GSA will track progress on this objective using performance and contextual

indicators, and will review progress toward savings targets and project milestones during biweekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Employ new technologies and building management practices that are both cost-effective 

and environmentally responsible. 

2. Expand the use of alternative fuel vehicles governmentwide and ensure that low-cost, 

high-efficiency vehicle options are available to customer agencies.

3. Building on its capability to deliver comprehensive products and services across 

Government at the best value possible, GSA will continue to expand its offerings of 

sustainable products. Assist federal agencies in meeting environmental sustainability 

purchasing requirements by identifying and increasing the availability of green products 

and services. 

4. Enhance the usefulness of energy efficiency research, strategies, practices, and tools 

provided to federal agencies by improving existing and deploying new resources that will 

enable better measurement of the use and impact of the resources provided; and 

obtaining user feedback, and disseminating research, strategies, practices and tools. 

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Assisted Acquisition

Building Operations

Construction and Acquisition of 

Facilities

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. Going green saves money, and we are committed to a 

sustainable government that reduces energy and water use in federal buildings, responsibly 

disposes of electronic waste, and greens the federal fleet. GSA will also continue to work with 
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businesses to make sustainable products and services readily available and affordable to our 

partner agencies. 

GSA is reducing energy costs by implementing high-performing green features, such as 

photovoltaic rooftop arrays, rainwater recapture and reuse systems, green roofs, solar panels, 

and high efficiency building systems. GSA developed and implemented a new building 

operations and management system, GSALink, to collect and quickly respond to real time 

building data. GSA also implemented the Shave Energy Program, which focuses on low or nocost measures to reduce energy consumption. The goal of the program is to reduce facility 

energy consumption by approximately 10 percent. GSA is applying these principles to help drive 

savings to agencies as they convert to a more efficient and effective workplace. 

GSA has increased the sustainability of the federal supply chain by increasing the sales of 

green products and service offerings to 4.7 percent of total business volume in FY 2013 from 

the baseline of 2.4 percent in FY 2010. GSA will continue to identify additional sustainable 

product and service offerings and use focused communications to educate federal agencies 

about available green products and services and where they can be purchased.

GSA supported federal customers in purchasing alternative fuel vehicles to reduce the 

environmental impact of the federal fleet. In FY 2013, GSA initiated an incentive program to 

offer hybrids for the price of a regular sedan by funding the incremental costs. In addition, over 

80 percent of the vehicles purchased by GSA this fiscal year were classified as alternative fuel 

vehicles.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

At least 80 percent of all vehicles procured by FAS will be alternative fuel vehicles. 

Continue to leverage alternative financing for cost saving energy efficiency and renewable 

energy technologies that reduce greenhouse gas emissions. 

Serve as a test bed for sustainable technology through continued operation of the Green 

Proving Ground Program.
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Annual Performance Plan and Report

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Performance Goals.

Strategic Objective 1.3: Reduce resource use and environmental impact

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 1.3.1 – Green the federal supply chain

Percent green business volume↑ 2.2% 6.9% 5.0%

4.7% 6.0% 7.0%

Target 

Not Met

Percent green business offerings 

(Discontinued)↑

- 1.16%

1.49%

1.24%

- -

Target 

Not Met

Performance Goal 1.3.2 – Reduce water consumption

Total water consumption in billions of 

gallons↓

3.11 2.95 2.78

2.66 2.71 2.65 Target Exceeded

Water intensity (gallons/gross square feet) 

(Contextual Indicator)↓

13.2 12.4 -

11.0 - - NA

Performance Goal 1.3.3 – Reduce total energy purchased

Total energy purchased in trillion BTUs↓ 18.36 18.17 18.22

16.28 18.13 18.03 Target Exceeded

Energy Intensity (BTUs in thousands/gross 

square feet) (Contextual Indicator) ↓

62.2 58.1 -

57.9 - - NA

Performance Goal 1.3.4 – Reduce use of petroleum-based fuel

Annual use of petroleum-based fuel in 

millions of gallons↓

405.5 380.4 380.2

366.9 372.6 365.2 Target Exceeded

Performance Goal 1.3.5 – Purchase alternative fuel vehicles

Percent alternative fuel vehicles purchased↑ 80% 75% 80%

82% 80% 80% Target Exceeded

Performance Goal 1.3.6 – Provide useful energy efficiency information and tools to federal agencies

Usefulness of energy efficiency information 

and tools provided to federal agencies ↑

65% 78% 70%

70% 75% 80% Target Met

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
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Annual Performance Plan and Report

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Performance Goal 1.3.1 – Green the federal supply chain

GSA will increase green purchasing as a percent of business volume to 6 percent 

in FY 2014 and 7 percent in FY 2015.

Federal agencies have statutory and executive order requirements to

Purchase products with preferred environmental or energy attributes, 

Engage in electronics stewardship, 

Reduce use of toxic and hazardous chemicals, 

Increase the energy and water efficiency of Federal buildings, 

Increase the energy efficiency of fleet vehicles, and 

Reduce greenhouse gas (GHG) emissions. 

GSA, as an intermediary in the market, provides an avenue through which commercially 

available products and services can be delivered cost effectively to Federal agencies. In this 

role, GSA assists Federal agencies in meeting environmental sustainability purchasing 

requirements by identifying the availability of green products and services. GSA, through 

education and outreach, is able to influence federal green purchasing. Considering statutory 

and executive order requirements, GSA applied the following criteria to identify green products 

and services:

Green Products. Includes products that assist agencies to meet environmental purchasing 

requirements, products with an environmental icon, or products which adhere to 

environmental standards or certifications. 

Green Services. Services that involve the use of green products, or promote 

environmental sustainability goals, or including energy or environmental services.

Benefit to the Public. GSA, by raising awareness about tools such as the Green Products 

Compilation, will help agencies meet their sustainability goals and ultimately increase the 

sustainability of the Federal supply chain.

Performance and Contextual Indicators.

Green Purchasing as a percent of business volume. This performance indicator is calculated by 

dividing the summation of the dollars attributable to green purchases in the reported fiscal year 

and by the summation of total dollars of business volume (purchases) in the reported fiscal year 

tracked through the GSA Federal Acquisition Service systems.

GSA revised the methodology for calculating the percentage of its total business volume 

attributed to sales of green products. The change to the sales calculation will add business 

volume from the following new sources: Federal Strategic Sourcing Initiative (FSSI) Office 

Products, FSSI Print Management, IT Commodities Blanket Purchase Agreements, and 

Refurbished/Used Equipment (Schedule 70). The revised methodology will adjust the 

calculation of the value of product donation and reuse through GSA Excess and Computers for 

Learning to better reflect the value of products at the time of donation and reuse. 

Percent Green Business Offerings (Discontinued). This performance indicator is being 

discontinued due to the poor data quality of the information used to calculate this indicator. This 

indicator is calculated by dividing the total number of ‘green’ offerings by the total number of 

GSA offerings in GSA Advantage.

Progress Update. The sale of green offerings relative to FAS total business volume was less in 

FY 2013 compared to FY 2012 and the overall result is that FAS fell short of the 5 percent target 
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by approximately 0.36 percent. FAS’ final result for FY 2013 was 4.64 percent. There was an 

overall reduction in FAS business volume from FY 2012 to FY 2013 of $2.9 billion which is a 5.3 

percent reduction in overall business volume. However, sales in several of the contributing 

programs such as the sale of Alternative Fuel Vehicles and products classified as green in GSA 

Advantage saw reduction from FY 2012 to FY 2013 that outpaced the overall reduction in 

business experienced by GSA in FY 2013.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-31

Performance Goal 1.3.2 – Reduce water consumption

GSA will reduce water consumption to 2.71 billion gallons in FY 2014 and 2.68 

billion gallons in FY 2015.

Water is an important natural resource that is increasingly depleted due to weather anomalies 

that result in droughts, lack of snowfall run off and replenishment of aquifers. Additionally, the 

quality of our water supply is threatened due to external factors. As a large consumer of potable 

water, GSA is responsible for consuming water efficiently and appropriately. GSA has identified 

opportunities for water conservation measures that provide quick payback where historically 

projects have had longer paybacks. The challenge is to fund water measures that are most cost 

effective but also result in significant reductions in consumption.

Benefit to the Public. Public Buildings Service

Performance and Contextual Indicators.

Total water consumption. This performance indicator reports total water, in billions of gallons 

(bg), purchased by GSA in each fiscal year. Water utility bills frequently include adjustments to 

previously billed values requiring adjustments to previous data. Factors that contribute to 

inaccurate billing include utility metering problems as well as information on “reclaimed” water 

use which does not count as “potable” consumptions. Some of GSA’s water bills are based on 

estimates and must be reconciled later. This indicators excludes leased space where utility 

costs are included in the rent that GSA pays.

Water intensity. This contextual indicator is defined as total water (in gallons) purchased by 

divided by the total GSA gross square feet. 

Progress Update. GSA was successful in meeting its annual water consumption target for the 

first time since FY 2009. Our focus this year was closely reviewing sites that were greater than 4 

percent over the baseline and determined improvement plans or shared best practices to bring 

the national consumption within target. GSA has also reduced water consumption by completing 

energy efficient American Recovery and Reinvestment Act projects. GSA has reduced water 

from 12.4 gallons per gross square foot to 11.0 gallons per gross square foot.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-32

Performance Goal 1.3.3 – Reduce total energy purchased

GSA will reduce total annual energy purchased to 18.13 trillion BTUs in FY 2014 

and 18.03 trillion BTUs in FY 2015.

GSA manages energy consumption towards mandated percent reduction goals per gross 

square foot. To capture energy trends, tracking total purchased energy is measured between 

fixed time periods to more accurately trend performance of our portfolio, enabling us to reflect 

changes in density of employees.

Benefit to the Public. Responsible management of energy usage in federal workspace lowers 

cost to the American public, provides greater availability of domestic energy resources for other 

purposes, and contributes to better air quality.

Performance and Contextual Indicators.

Total energy purchased directly by GSA for GSA and its customer agencies. This performance 

indicator reports the total energy purchased by GSA each fiscal year in owned and leased 

space where GSA makes payments directly to utility companies reported in trillions of British 

thermal units (tbtu). It excludes leased space where utility costs are included in the rent that 

GSA pays. GSA collects energy consumption data from invoices received from energy 

providers. Target values may fluctuate based on the total amount of square footage of space in 

the GSA inventory that must be heated and cooled in each year. The data used for this measure 

are net of energy sold back to the grid from GSA power generation facilities.

Energy Intensity. This contextual indicator is defined as the energy GSA purchases in BTU 

divided by the gross square feet. 

Progress Update. GSA exceeded its FY 2013 target for purchased energy and purchased less 

energy than anticipated, with mild winter temperatures contributing to achieving this target. We 

increased our use of on-site energy generation, which also contributed to us exceeding our 

target, incorporated advanced metering in our building systems, educated building managers on 

best practices to reduce energy consumption, and completed energy efficient American 

Recovery and Reinvestment projects. We reduced energy intensity from 58.1 BTU per gross 

square foot in FY 2012 to 57.9 BTU per gross square foot in FY 2013.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 1.3.4 – Reduce use of petroleum-based fuel

GSA will reduce annual consumption of petroleum-based fuel to 372.6 million 

gallons in FY 2014 and 365.2 million gallons in FY 2015.

Executive Order 13514: Federal Leadership in Environmental, Energy, and Economic 

Performance (2009) made the reduction of greenhouse gas emissions a priority and set specific 

targets for the reduction of petroleum consumption by agency fleets—a two percent annual 

reduction over a baseline year of FY 2005 through FY 2020. This reiterates the same two 

percent annual reduction target set through E.O. 13423 (2007) and the Energy Independence 

and Security Act of 2007.

Benefit to the Public. This performance indicator assists with reducing federal agency 

petroleum fuel costs and increasing the environmental sustainability of federal government fleet 

operations for the public.

Performance and Contextual Indicators.

Annual use of petroleum-based fuel in millions of gallons. This performance indicator computes 

the total annual use of petroleum-based fuel in the federal motor vehicle fleet in millions of 

gallons to assist with reducing petroleum based fuel consumption in the federal fleet. Usage is 

obtained directly from agencies via the GSA Federal Automotive Statistical Tool (FAST). This 

indicator is expressed as the total annual use of petroleum-based fuel in the federal motor 

vehicle fleet in millions of gallons to assist with reducing petroleum based fuel consumption in 

the federal fleet.

Progress Update. Petroleum-based fuel use was 366.9 million gallons in FY 2013. This 

amount is 3.5 percent below the 380.2 million gallon target. This measure reports governmentwide data on petroleum-based fuel use. 

Lead Office. Office of Government-wide Policy
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 1.3.5 – Purchase alternative fuel vehicles

GSA will maintain in FY 2014 and FY 2015 80 percent of vehicles purchased being 

alternative fuel vehicles. 

Each fiscal year, FAS procures approximately 60 thousand vehicles for the federal government. 

A significant number of these new purchases are Alternative Fuel Vehicles (AFV) which run on 

alternative fuels or meet the EPA’s low greenhouse gas emitting vehicle requirements. This goal 

helps to ensure government operations are more sustainable and have a reduced 

environmental impact.

Benefit to the Public. Transitioning to a fleet composed primarily of AFVs will lower petroleum 

consumption, greenhouse gas emissions, and annual fuel costs for customer agencies.

Performance and Contextual Indicators.

AFVs purchased as percentage of total motor vehicles purchased. This performance indicator 

reports the AFV purchases in a given fiscal year as a percentage of the total number of vehicles 

purchased. AFVs are vehicles that run on non-petroleum fuels – like electricity, natural gas, or 

biofuels – or meet the EPA’s low greenhouse gas emitting vehicle requirements. Total motor 

vehicles purchased include orders made by GSA for its fleet customers and motor vehicles 

orders made by other Federal agencies.

Progress Update. 34,182 out of 41,643 vehicles purchased in FY 2013 were AFVs (82.1 

percent). AFVs account for $835 million of $1,069 million of vehicles purchased for FY 2013.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 1.3.6 – Provide useful energy efficiency information and tools to 

federal agencies

GSA will annually achieve at least 80 percent of stakeholders rating energy 

efficiency information and tools provided to federal agencies as effective in FY 

2014 and FY 2015.

Executive Order 13514: Federal Leadership in Environmental, Energy, and Economic 

Performance (2009) and the Energy Independence and Security Act of 2007 (EISA) made the 

advancement of sustainable federal buildings a priority. EISA established GSA’s Office of 

Federal High-Performance Green Buildings to enable and enhance Federal leadership in the 

field of sustainable real property portfolio management and operations. Among other 

responsibilities, the office provides best practices, tools, and resources to support federal 

agencies in advancing sustainability. This goal supports both government-wide and GSA goals 

for reducing resource and environmental impact. The Office of Federal High-Performance 

Green Buildings surveyed stakeholders on the usefulness of energy research, strategies, 

practices & tools.

Benefit to the Public. The GSA Office of Federal High-Performance Green Buildings helps 

agencies advance the environmental sustainability of their building operations by providing 

research, strategies, practices and tools to increase energy and water efficiency. This 

performance indicator measures federal agency ratings of the usefulness of the information 

provided by GSA to advance the sustainability of their building operations.

Performance and Contextual Indicators.

Usefulness of energy efficiency research, strategies, practices, and tools provided by OGP to 

federal agencies (Updated). This performance indicator measures the percentage of survey 

respondents who rate the research, new strategies, best practices, and tools related to energy 

efficiency issued by the GSA Office of Federal High-Performance Green Buildings as useful or 

very useful. The measure will assess how useful the research, strategies, practices, and tools 

are to federal agencies and groups. Future measures will assess the adoption of strategies and 

best practices, and their impact on increasing environmental and economic performance. This 

measure demonstrates progress toward meeting Energy Independence and Security Act 

requirements. The indicator focuses on users of the GSA Sustainable Facilities Tool, which is a 

one-stop online resource available to any government or private sector user to identify and 

prioritize cost-effective green building and procurement strategies to improve environmental 

performance.

The GSA Office of Federal High-Performance Green Buildings helps agencies advance the 

environmental sustainability of their building operations by providing research, strategies, 

practices and tools to increase energy and water efficiency. This performance indicator 

measures federal agency ratings of the usefulness of the information provided by GSA to 

advance the sustainability of their building operations.

Progress Update. GSA met the target of 70 percent of stakeholders rating energy efficiency 

information and tools provided to federal agencies as effective in FY 2013.

The Office of Federal High-Performance Green Buildings surveyed stakeholders on the 

usefulness of energy research, strategies, practices and tools. The Sustainable Facilities Tool 

(SFTool) team designed a 16 question survey to be distributed immediately to all attendees of 

our online Sustainable Facilities Tool overview sessions. 100 percent of stakeholders rated the 
U.S. General Services Administration 

Annual Performance Plan and Report

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SFTool overview useful. 95 percent would recommend a similarly structured overview session 

to a colleague. 95 percent felt the session provided information in a format they could share with 

their team. More than half the respondents expressed interest in attending additional, 

specialized demos of SFTool Modules. 70 percent of stakeholders rated SFTool information as 

relevant to their professional responsibilities.

Lead Office. Office of Government-wide Policy
U.S. General Services Administration 

Annual Performance Plan and Report

APR-37

Strategic Goal 2: Improve the efficiency of operations and service delivery

GSA will build greater efficiency in its operations and service delivery. Operations will be 

streamlined and improved to ensure that we provide our services efficiently to our customers. 

GSA will continue to invest in improving our real property assets to meet the short and long term 

needs of our customers. GSA will improve internal operations by enhancing real property asset 

quality, and streamlining operations, processes and technology delivery. GSA will assist the 

federal government in improving the efficiency of fleet operations government-wide by pursuing 

the consolidation of customer managed fleets into GSA’s fleet operations.
U.S. General Services Administration 

Annual Performance Plan and Report

APR-38

Strategic Objective 2.1: Increase the efficiency of GSA operations

GSA will build greater efficiency in meeting customer needs in the areas of acquisition services 

and real property leasing, construction, and disposal. We will reduce administrative costs, 

improve oversight and strengthen internal controls to drive efficiency in our operations. Zerobased budgeting practices will be employed to allocate and reduce travel, information 

management infrastructure, management support contracts based on agency priorities.

Strategic Objective Goal Leaders.

Mike Casella, Chief Financial Officer 

(Lead Office)

Tom Sharpe, Commissioner, Federal 

Acquisition Service

Dorothy Robyn, Commissioner, Public 

Building Service 

Anne Rung, Associate Administrator, 

Office of Government-wide Policy

Strategies. GSA will track progress on this objective using performance and contextual 

indicators, and will review progress toward savings targets and project milestones during biweekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Streamline and standardize processes, maintain cost-beneficial controls and improve 

financial and performance data analytics and reporting;

2. Mitigate financial risks by developing, implementing and overseeing rigorous and 

consistent internal controls on budgetary and financial processes and transactions;

3. Reduce indirect costs through realignment;

4. Achieve greater efficiency in delivering products and services by implementing category 

management best practices;

5. Increase percent of leased revenue available after administering the leasing program by 

improving billing practices for rent and building services;

6. Design, construct and manage buildings that efficiently meet our customers’ 

requirements; and

7. Change the use of space and reduce the average space allocation by implementing 

innovative workplace solutions and adoption of a “smart occupancy” approach to GSA 

occupied space.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Operating Expense

Real Property Disposal

Real Property Relocation 

Rental of Space

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. GSA is committed to providing high quality services 

and support to our partner agencies at an optimum value. GSA is introducing new performance 

goals to help assess how well we are streamlining our organization: (1) reduce total cost of 
U.S. General Services Administration 

Annual Performance Plan and Report

APR-39

operations as a percentage of total goods and services provided, and (2) lower total GSA 

corporate indirect costs from an FY 2010 baseline. As a result of streamlining activities, GSA 

realized a $130 million reduction in indirect costs against the FY 2010 baseline and improved 

operational efficiency to reduce operating costs from 10.73 percent (in FY 2010) to 9.6 percent 

in FY 2013. If GSA had operated at the FY 2010 operational efficiency levels in FY 2013 then it 

would have cost our customers, and in turn the American public, an additional $252 million for 

us to deliver the volume of goods and services we provided. 

We continue to track our progress in efficiently managing our programs in acquisition services, 

lease management, building construction projects, utilization of acquisition training courses, and 

real property disposal services. Notable areas of improvement realized in FY 2013 include lease 

management and management of construction projects. Ongoing implementation of improved 

project management processes has led to continual improvement in keeping building 

construction projects on schedule. In FY 2013, all of our prospectus level construction projects 

were assessed as being on schedule. 

In FY 2013, GSA improved its management of occupancy agreements and billing practices to 

meet our goal of ensuring that revenue from our leased buildings fully covered our operating 

expenses. GSA experienced mixed success in meeting its cycle time goals for real property 

disposal services. GSA continued to effectively award public sales properties within 135 days. 

However, GSA missed its performance target for non-competitive sales and donations. GSA 

continues to meets its targets for managing cost in its acquisition operations and efficiently 

providing training courses through the Federal Acquisition Institute. 

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

Define, measure and reduce overhead and eliminate unnecessary duplication and analyze 

and improve processes;

Continue to consolidate indirect activities to reduce overhead and administrative costs and 

implement more effective systems and processes and ensure cost-beneficial controls; 

Mitigate financial risks by developing, implementing and overseeing rigorous and 

consistent internal controls on budgetary and financial processes and transactions;

Enhance reporting and analytics capability to measure and manage costs across the 

agency, improve transparency in the financial and operational reporting of GSA data and 

support data-based decisions;

Develop agency-wide process improvement capability to inform streamline and 

standardize processes, maintain cost-beneficial controls and improve financial and 

performance data analytics and reporting;

Develop a fully integrated, performance based decision-making process to link budget to 

performance and improve resource allocation and organizational efficiency;

Implement corrective action plan to ensure full cost recovery in the GSA leasing program; 

Manage operations in the Federal Acquisition Service to control direct costs and ensure 

full cost recovery in the Acquisition Service Fund;

Work with our customer agencies to further educate them on how to efficiently identify and 

dispose of unneeded real property assets; and

Change the use of space and reduce the average space allocation by implementing 

innovative workplace solutions and adoption of a “smart occupancy” approach to GSA 

occupied space.
U.S. General Services Administration 

Annual Performance Plan and Report

APR-40

Performance Goals.

Strategic Objective 2.1: Increase the efficiency of GSA operations

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 2.1.1 – Increase the efficiency of GSA operations

Operating costs as a percentage of goods 

and services provided (New) ↓

9.99% 10.03% 9.60%

9.60% 9.4% 9.2% Target Met

Performance Goal 2.1.2 – Control indirect costs

Reduction in total GSA indirect costs from 

the FY 2010 baseline in millions (New) ↑

$136M $115M $132M

$132M $155M $200M Target Met

Performance Goal 2.1.3 – Achieve full cost recovery in the GSA leasing program

Percent of leased revenue available after 

administering program ↔

-0.3% -0.3% 0-2%

-0.09%

0-2% 0-2% Target 

Not Met

Performance Goal 2.1.4 – Complete new construction projects on schedule

New construction projects on schedule↑ 83% 93% 90%

100% 90% 90% Target Exceeded

Performance Goal 2.1.5 – Timely award of public sale properties and non-competitive sales and donations

Percentage of public sale properties 

awarded within 135 days↑ 100% 100% 90%98% 90% 90% Target Exceeded

Percentage of non-competitive sales and 

donations awarded within 220 days↑ 95% 91% 90%88% 90% 90% Target Not Met

Performance Goal 2.1.6 – Deploy civilian acquisition workforce training courses efficiently

Attendance levels for Federal Acquisition 

Institute training courses↑ 75% 86% 80%89%

80% 80% Target 

Exceeded

Performance Goal 2.1.7 – Control direct costs of acquisition services (Discontinued)

Direct costs of acquisition services as a 

percentage of gross margin (discontinued)↓

33.9% 33.5%

22.1%

20.5%

- -

Target 

Exceeded

Performance Goal 2.1.8 – Improve the efficiency of E-Gov Travel Service processing (Discontinued)

Percentage of Travel Vouchers Processed 

E-Gov Travel Service (discontinued) 85% 84%

74%

86%

- -

Target 

Exceeded

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
U.S. General Services Administration 

Annual Performance Plan and Report

APR-41

Performance Goal 2.1.1 – Increase the efficiency of GSA operations

GSA will improve operational efficiency so operating expenses are no more than 

9.4 percent of revenues in FY 2014 and no more than 9.2 percent of revenues in FY 

2015.

GSA will increase operational efficiency through consolidation and standardization of business 

processes. GSA will strengthen agency-wide process improvement capabilities to design 

efficient and standardized processes across the agency. GSA will improve data transparency 

and data analytics capabilities to support fully integrated, performance-based decision-making. 

GSA tracks the overall efficiency to GSA operations by dividing the total operating costs by the 

total value of goods and services provided.

Benefit to the Public. Improving operational efficiency means GSA will be able to deliver goods 

and services to our customers at a lower cost. This improved efficiency will translates to 

reduced costs to operate GSA and lead to savings to the American public.

Performance and Contextual Indicators.

Total operating costs as a percentage of total goods and services provided. This performance 

indicator measures the overall efficiency to GSA operations by dividing the total operating costs 

by the total value of goods and services provided. The purpose of this indicator is to monitor 

overall GSA efficiency and track efficiency improvements while controlling for changes in the 

customer demand for GSA goods and services. This indicator is calculated by taking operating 

expenses, inclusive of allocated corporate indirect expenses, in the Federal Acquisition Service 

(FAS) and Public Building Service (PBS) as a percentage of the total goods and services 

provided by FAS and PBS. The FAS operating expenses includes all FAS expenses except 

flow-through and customer direct benefit activities, which include fleet related expenses and 

outbound transportation costs. PBS operating posts include all total PBS building operations 

costs less activities that provide direct benefit to the customer. Direct benefit activities include 

building utilities, maintenance, cleaning, security, fire and other building services. 

Progress Update. GSA met its target of reducing operating costs to 9.6 percent goods and 

services provided in FY 2013. This is a 4.3 percent reduction from the FY 2010 operational 

efficiency of 10.03 percent.

Lead Office. Office of the Chief Financial Officer
U.S. General Services Administration 

Annual Performance Plan and Report

APR-42

Performance Goal 2.1.2 – Control indirect costs

GSA will reduce indirect costs from the FY 2010 baseline by $155 million in FY 

2014 and $200 million in FY 2015.

In FY 2012 and FY 2013, GSA reorganized to consolidate functions. Budget and finance 

management, information technology, and human resource functions were transferred from the 

Acquisition Service Fund and Federal Building Service Fund to the Working Capital Fund.

Monitoring indirect costs will track efficiency improvements in GSA’s administrative and support 

activities and quantify the savings achieved from organizational consolidations and 

reorganizations. Operating costs are composed of direct and indirect costs and exclude the 

costs of goods and services sold. Indirect operating costs are expenses that are allocated 

across revenue generating activities. This indicator will track savings and efficiencies due to the 

consolidations and other improvements in the indirect activities.

Benefit to the Public. Controlling indirect costs will improve GSA operational efficiency and 

translate to savings to customer agencies and the American public.

Performance and Contextual Indicators.

Reduction in total GSA indirect costs from the FY 2010 baseline. This performance indicator 

measures the GSA cost of indirect operating costs as compared to the FY 2010 baseline.

Indirect costs include: (1) corporate management, (2) business executive direction, and (3)

business support and is calculated as the total cost of corporate indirect costs plus FAS indirect 

costs plus PBS indirect costs. Corporate indirect include corporate management costs and 

business support: comprised of indirect costs that are variable to the business activity they 

support and includes finance centers, and CIO direct business systems costs and related 

personnel compensation and benefits. FAS Indirect includes Business Executive Direction (i.e., 

national business management (FAS Commissioner and Deputies, Assistance Commissioners 

and Regional Commissioners and immediate offices), FAS integrators and regional/business 

line management - including administrative liaisons for CHCO/CFOs, and Program 

Management. PBS Indirect includes PBS IT Service, personnel compensation and benefit costs,

management support costs and other PBS administrative expenses, including: transportation, 

telephones, printing, training, supplies, equipment and travel.

Progress Update. GSA met its FY 2013 target of reducing indirect costs by $130 million from 

the FY 2010 baseline primarily due to savings realized through the realignment of finance, 

information technology and human capital functions.

Lead Office. Office of the Chief Financial Officer
U.S. General Services Administration 

Annual Performance Plan and Report

APR-43

Performance Goal 2.1.3 – Achieve full cost recovery in the GSA leasing program

GSA will improve the efficiency of the leasing program so the revenue available 

after administering the program is between zero and two percent in FY 2014 and 

FY 2015.

The GSA leasing program provides lease space to meet customer needs timely and at best 

value. GSA strives to generate sufficient program revenue to break even in the leasing program

after covering all administrative costs to operate. 

Benefit to the Public. Maintaining leased revenue available after program administration costs 

at between zero and two percent of revenues demonstrates that the leasing program can 

efficiently operate within the fees collected from customer agencies. Efficient delivery of leased 

workspace gives agencies greater flexibility in housing their workforce and operations when 

owned space is unavailable or does not meet an agency’s needs. 

Performance and Contextual Indicators.

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.

Progress Update. GSA missed its target of lease revenue available between 0 - 2 percent once 

again in FY 2013, but performance did improve from FY 2012 levels. The end of year 

performance for FY 2013 of -0.09 percent, compared to -0.31 percent in FY 2012, is the result 

of various issues, including timely and accurate customer billing and lessor payment, 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 

continues to work collaboratively across the organization to focus on this metric, and hopes to 

continue the upward trend for results in FY 2014. 

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-44

Performance Goal 2.1.4 – Complete new construction projects on schedule

GSA will complete at least 90 percent of new construction projects on schedule 

annually in FY 2014 and FY 2015.

This measure monitors the schedule performance of new construction projects in the capital 

program. The measure tracks performance by month, providing project managers and program 

directors with timely project status information to actively manage the project. In this way, the 

measure drives the on-time completion of new construction projects.

New construction projects are, on average, the largest projects by dollar value that are included 

in the Capital Project Cycle Time measure. By tracking the performance of new construction 

projects separately from other projects, GSA can focus on the projects that carry the most 

weight in the Capital Project Cycle Time measure. GSA’s key challenges to making this 

measure are construction delays related to unanticipated environmental conditions and 

necessary scope changes that were not previously identified.

Benefit to the Public. Delivering space when the customer needs it enables customers to carry 

out their mission with minimal distractions. GSA’s efficient delivery of new facilities reduces the 

resource demands of customer agencies that may translate to higher operational effectiveness 

and/or lower operational costs.

Performance and Contextual Indicators.

New construction projects on schedule. This measure reports the percentage of new 

construction projects completed on schedule, weighted by the value of work in place. Using an 

earned value technique, this measure assesses construction project performance on all 

prospectus level projects. Delivering space when the customer needs the space enables our 

customers to carry out their mission with minimal distractions.

Progress Update. GSA exceeded its 90 percent target in FY 2013 by delivering 100 percent of 

new construction projects on schedule. GSA attributes this improvement to increased adoption 

of improved project and performance management processes. GSA used project management 

processes to improve the accuracy and quality of project reporting. GSA also used key 

performance indicators to track project teams’ compliance with construction schedules, invoice 

payments, and issues that could cause project delays.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-45

Performance Goal 2.1.5 – Timely award of public sale properties and non-competitive 

sales and donations

GSA will award at least 90 percent of public sale properties within 135 days in FY 

2014 and FY 2015.

In the current real estate market, the goal for the public sale properties awarded within 135 days 

is to maximize returns through fair and transparent competition. GSA invests the time needed to 

market the property in print mediums, hold open house, to answer questions from interested 

bidders, and to hold the auction. GSA uses a “soft close process”. A soft close process provides 

an auction end time, however the auction extends until only the highest bid survives without 

challenge. At times it may be advantageous to the agency to allow an auction to extend over the 

135 day target in order to bring the greatest return to the Federal Government if there is active 

bidding.

Benefit to the Public. Decreasing the cycle time for public sales increases the speed with 

which surplus federal properties can be disposed of and supports the management of a 

financially self-sustaining portfolio of federal real property assets. Maintaining a viable, self 

-sustaining inventory of real properties ensures federal agencies have appropriate facilities at 

the best possible cost.

Performance and Contextual Indicators.

Percentage of public sale properties awarded within 135 days. This indicator 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. Award refers to the date the offer to 

purchase is completed by GSA and the purchaser. 

Progress Update. GSA exceeded the real property disposal goal of awarding 90 percent of 

competitive public sales within 135 days with 151 out of 154 sales (98 percent) awarded within

135 days. GSA has streamlined the bidding process by standardizing the Invitation for Bids, 

which GSA uses to market properties for disposal. By aggressively marketing and using online 

auctions continue to attract buyers, GSA has excelled in disposing of real property in a timely 

manner, saving taxpayers money. 

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-46

Performance Goal 2.1.5 – Timely award of public sale properties and non-competitive 

sales and donations – continued

GSA will award at least 90 percent of non-competitive sales and donations within 

220 days in FY 2014 and FY 2015.

Benefit to the Public. Decreasing the cycle time for non-competitive sales and donations 

increases the speed with which surplus federal properties can be disposed of and supports the 

management of a financially self-sustaining portfolio. Maintaining a viable, self-sustaining 

inventory of real properties ensures that federal agencies have appropriate facilities at the best 

possible cost. Additionally the properties that are awarded via non-competitive sales and 

donations to state and local public bodies and non-profit organizations can contribute to a 

community's vitality by providing benefits such as expanded employment opportunities, housing 

for the homeless, establishment of educational centers, and parks and open space.

Performance and Contextual Indicators.

Percentage of non-competitive sales and donations awarded within 220 days. This indicator 

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 the disposal 

experiences an unavoidable 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. Award refers to the date the 

offer to purchase is completed by GSA and the purchaser. 

Progress Update. GSA was just below the target of awarding 90 percent of competitive sales 

and donations within 220 days. GSA awarded 88 percent of projects, or 37 out of 42 projects, 

within 220 days. The five projects that did not meet the measure had unique circumstances that 

delayed the process. These delays were mainly attributed to local community concerns, 

political interests, and environment cleanup conditions. To help us meet these disposal targets, 

GSA has incorporated project management principles to streamline and expedite the disposal 

process when possible. In FY 2014, we will continue to screen and process properties 

concurrently to further improve our timeliness. 

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-47

Performance Goal 2.1.6 – Deploy civilian acquisition workforce training courses 

efficiently

GSA will achieve at least 80 percent attendance levels for Federal Acquisition 

Institute training courses in FY 2014 and FY 2015.

Established in 1976 under the Office of Federal Procurement Policy Act, the Federal Acquisition 

Institute (FAI) has been charged with fostering and promoting the development of a federal 

acquisition workforce. FAI, housed within OGP, facilitates and promotes career development 

and strategic human capital management for the acquisition workforce. One of its core 

responsibilities is to provide training to the civilian acquisition workforce in the interest of 

improving government-wide capacity for exceptional acquisition performance. In the provision of 

training, FAI seeks to do so in an efficient and effective way. One indicator of efficiency is 

ensuring high attendance levels in courses offered. 

Benefit to the Public. Maintaining high attendance levels ensures GSA efficiently delivers 

acquisition workforce training to the federal acquisition workforce.

Performance and Contextual Indicators.

Attendance levels for Federal Acquisition Institute (FAI) training courses. This performance 

indicator assesses the percentage of available classroom training seats filled in FAI sponsored 

classes. This performance indicator measures the attendance divided by seats offered for the 

training courses. FAI, managed on behalf of the Federal Government by GSA, is charged with 

fostering and promoting the development of a federal acquisition workforce—which includes the 

provision of essential acquisition training. Measuring class fill rates is a key indicator for 

ensuring that FAI provides training courses in an efficient manner—limiting empty seats to the 

greatest extent possible. Consolidating the provision of acquisition training across government 

also eliminates duplication and reduces costs by providing a shared training program for the 

federal government.

Progress Update. GSA exceeded the target of 80 percent attendance levels in FY 2013 by 

filling 89 percent: 2,851 of 3,210 seats.

Lead Office. Office of Government-wide Policy
U.S. General Services Administration 

Annual Performance Plan and Report

APR-48

Performance Goal 2.1.7 – Control direct costs of acquisition services (Discontinued)

The Acquisition Service Fund must recover all costs through fees charged to customers for 

goods and services provided. Minimizing operating costs as a percent of gross margin ensures 

the efficiency of FAS programs and directly impacts the fees charged to customer agencies. 

This indicator helps to drive efficiency and ensure that financial execution is in line with the 

annual financial plan. Reductions in costs can lead to the reduction in fees GSA must charge to 

recover cost, more competitive prices for the Federal government and ultimately lower costs to 

the American public.

This indicator ensures drops in GSA fees due to gained efficiencies will result in lower, more 

competitive prices for the Federal government and ultimately lower costs to the American public. 

Minimizing operating costs as a percent of gross margin ensures the efficiency of FAS programs 

and directly impacts the fees charged to customer agencies.

Benefit to the Public. Through monitoring direct cost relative to margin FAS is able to ensure 

that its operations are efficient and in alignment with the annual financial plan.

Performance and Contextual Indicators.

Direct costs as a percentage of gross margin. This performance indicator measures the direct 

costs of all Federal Acquisition Service programs divided by gross margin of all Federal 

Acquisition Service programs. Gross margin refers to the revenues remaining after covering the 

purchase price to FAS for the product or service acquired. Direct costs are the costs to FAS 

directly associated with acquiring the product or service, and include operating expenses plus 

management expense and costs for all Integrator Offices. 

Progress Update. GSA exceeded the target for this goal by keeping direct costs as a 

percentage of gross margin at 20.5 percent in FY 2013 compared to a target of 22.1 percent.

Realized savings were due to cost containment efforts over operating expenses. We are

discontinuing this goal and have transitioned to controlling costs at the agency level. We will 

continue to monitor and track program costs internally through this legacy metric an emphasis 

will now be placed on holistic cost control for external reporting purposes. 

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-49

Performance Goal 2.1.8 – Improve the efficiency of E-Gov Travel Service processing

(Discontinued)

E-Gov Travel Service is a cloud based service used by more than 90 federal agencies for travel 

booking and expense management. This indicator tracks the deployment of the system across 

government. As deployment increases, agencies benefit from a common platform to consolidate 

online travel booking services and expense management platforms to increase efficiency, 

transparency, accountability and save taxpayer dollars.

Benefit to the Public. Agencies are consolidated into a single, unified system through E-Gov 

Travel Service. Government agencies stand to benefit from increased cost savings as a result of 

not needing to maintain their own travel platform and leveraging a common platform for online 

travel booking and expense management. The result of this program is increased efficiency, 

transparency, and savings of American taxpayer dollars.

Performance and Contextual Indicators.

Percentage of Travel Vouchers Processed E-Gov Travel Service. This indicator measures the 

number of travel vouchers processed using E-Gov Travel Service as a percentage of the total 

number of vouchers processed by the E-Gov Travel Service market. The total vouchers 

serviced through E-Gov Travel Service (ETS) divided by the total voucher population. The total 

voucher population is currently estimated at 2,323,990.

Progress Update. The estimated universe for travel vouchers was adjusted from 2.8 million 

down to 2.3 million over the course of FY 2013. Based on this adjustment, the cumulative 

percentage of vouchers processed through the E-Gov Travel Service reached 86 percent in FY 

2013 and exceeded the goal 74 percent. GSA will no longer report this indicator, which has 

been reported in the GSA Congressional Justification since FY 2006. While this indicator proved 

valuable in tracking the program as it was deployed, as the program matured in recent years, 

the value of reporting this measure externally has diminished.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-50

Strategic Objective 2.2: Enhance asset management

GSA will continue to invest in improving our real property assets and operating systems to meet 

the needs of its federal customers. We will use asset evaluation tools to determine the financial 

performance in the real property inventory. By applying leading and innovative building 

operations management principles, we will provide services in an efficient and effective manner 

for the American taxpayer.

GSA will continue to support customers in meeting their fleet needs though the efficient 

management of our fleet operations. Since we are responsible for approximately one half of the 

federal fleet, we leverage economies of scale in delivering fleet solutions to customers that 

include working with customers to find the best solutions to meet their mission critical needs at 

the lowest cost possible. We are also able to manage changes in demand from customers 

through use of its vehicles to alleviate the need for additional assets by the federal government 

to meet short term needs.

Strategic Objective Goal Leaders: 

Dorothy Robyn, Commissioner, Public 

Building Service (Lead Office)

Tom Sharpe, Commissioner, Federal 

Acquisition Service

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Maintain a viable, self-sustaining inventory of real properties providing federal agencies 

with optimum facilities at the best possible cost.

2. Ensure customer agencies are paying competitive, market rates for building support 

services.

3. Actively manage the GSA Fleet vehicles across the federal customer base and maximize 

asset utilization to the greatest extent possible.

4. Leverage the information systems and infrastructure across the federal government to 

reduce per unit cost of vehicle operations.

5. Work with our customer agencies to further educate them on how to efficiently identify and 

dispose of unneeded real property assets.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Building Operations

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. For FY 2013, GSA had some success but faced 

continuing challenges in enhancing asset management and building operations. PBS was 

successful in meeting its overall FY 2013 operation cost goal; however, there are individual 

facilities that have costs above the private sector. Going forward in FY 2014, our goal will be to 

target negotiations for renewal contracts in these high cost buildings. Bringing these service 

costs down will be a key to saving additional funds in our facilities. GSA was unable to meet the 

return on equity measure target of 78.9 percent, falling short by 6.2 percent. Over the past few 

years, rising average asset values, increased construction costs, and reduced repair and 

alteration funding have made it more difficult to reach the 6 percent return on equity threshold in 

many of our facilities. To improve return on equity, GSA has developed a comprehensive plan to 

improve performance in all owned assets and specifically those not meeting the 6 percent
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threshold. Actions include ensuring timely and accurate billing through monthly monitoring of 

late occupancy agreements, better management of building-level expenses, and backfilling of 

vacant space using portfolio plans.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

Ensure customer agencies are paying competitive, market rates for building support 

services

Monitor vacant space for backfill opportunities.

Improve timely collection of revenue and better management of expenses.

Analyze financials of each asset during Asset Business Plan Reviews and identify cost 

reduction opportunities.

Performance Goals.

Strategic Objective 2.2: Enhance asset management

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 2.2.1 – Achieve a positive return on equity for government-owned assets

Percent of government-owned properties 

achieving a return on equity of at least six 

percent↑

76.1% 71.8% 78.9%

72.4% 78.9% 78.9% Target Not Met

Performance Goal 2.2.2 – Provide building cleaning and maintenance at competitive costs

Cost of cleaning and maintaining space 

against private sector benchmarks ↔

0.1% 3.7% +/-5%

3.1% +/-5% +/-5% Target Met

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
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Performance Goal 2.2.1 – Achieve a positive return on equity for government-owned 

assets

GSA will achieve a 6 percent return on equity on 78.9 percent of government 

owned assets in FY 2014 and FY 2015.

The GSA return on equity evaluates the overall financial performance of PBS’s real property 

assets and assesses the viability of the Federal Buildings Fund. In FY2013, GSA’s goal was to 

achieve a six percent return on equity on 78.9 percent of government assets; however, GSA 

only achieved this level of return on 72.4 percent of assets. Return on equity is calculated by 

comparing an asset’s net operating income to its value. GSA has developed and began 

implementing strategies to improve asset performance. 

Benefit to the Public. Maintaining a viable, self-sustaining inventory of real properties provides 

Federal agencies with optimum facilities at the best possible cost

Performance and Contextual Indicators.

Percent of government-owned assets achieving a return on equity of at least six percent. This 

performance indicator measures the ratio of the annual net operating income to the value of an 

asset, typically fair market value. Assets with a return of equity of at least six percent fulfill the 

long-term needs of our customers and generate enough revenue to fund the asset’s operations, 

repairs and capital needs.

Progress Update. GSA did not meet the target of 78.9 percent of government-owned buildings 

maintaining a 6 percent return on equity; GSA had only 72.4 percent of GSA owned buildings 

meet this target. Over the past few years, average asset values and construction costs have 

increased making it slightly more difficult to reach the 6 percent threshold. To improve return on 

equity, GSA has identified actions to improve performance in owned assets not meeting the 

target. Actions include ensuring timely and accurate billing through monthly monitoring of late 

occupancy agreements, reducing building operating expenses, and backfilling vacant space by 

using client and local portfolio plans to identify backfill opportunities. Additionally, GSA has 

performed a review of all assets that are close to meeting the 6 percent threshold or at risk of 

dropping below the threshold. GSA will develop corrective actions for these assets to help us 

reach our goal in FY 2014.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-53

Performance Goal 2.2.2 – Provide building cleaning and maintenance at competitive 

costs

GSA will provide cleaning and maintenance of space at a cost that is within five 

percent of private sector benchmarks in FY 2014 and FY 2015.

This measure compares GSA’s building operations and maintenance costs with private sector 

costs for buildings that are similar in size and location. This measure evaluates GSA’s ability to 

offer the services at competitive prices. GSA’s main challenge in this area is federal law that 

limits the government's ability to negotiate contracts similar to private sector contracts. GSA will 

continue to leverage our market position to reduce our building operations and maintenance 

costs.

Benefit to the Public. This goal ensures that customer federal agencies are paying 

competitive, market rates for building support services. Cost savings provide federal agencies 

the opportunity to reduce their budgets and collectively lower tax burden to the public.

Performance and Contextual Indicators.

Percent within the private sector benchmarks for cost of cleaning and maintaining office and 

similarly serviced space. This performance indicator compares GSA cleaning and maintenance 

costs for owned buildings to industry benchmark rates in the same geographic area.

Benchmarks are provided by local private sector performance data from the Building Owners 

and Managers Association for each city, location, and building size group. GSA compares its 

cost per rentable square foot to the Building Owners and Managers Association lists of the 

median and mean cost per square foot for cleaning, maintenance, roads, and grounds. Medians 

are used for buildings smaller than 50,000 square feet and means are used for larger buildings.

Progress Update. GSA was successful in meeting its FY 2013 operating cost goal. GSA is 

reviewing all buildings that have costs about the private sector. GSA will renegotiate contracts 

for these buildings with higher cost.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-54

Strategic Goal 3: Deliver Excellent Customer Service

GSA will deliver excellent customer service to federal agencies and departments by making it 

easier for them to meet their real estate, acquisition and technology needs. We will strengthen 

communications, processes, and offerings, and generate new ideas through collaboration with 

customers and industry. This goal will be achieved through a commitment to service, teamwork, 

problem-solving and continual improvement.
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Strategic Objective 3.1: Enhance relationships with customers, suppliers and 

stakeholders

GSA will improve customer knowledge through increased use of business intelligence, 

furthering strategic partnerships and improved financial stewardship. We will make it easier for 

federal agencies to acquire what they need to achieve their mission. We will also assess our 

performance in acquisition, technology, and real property services through annual surveys to 

attain customer perceptions concerning the quality, reliability, value, timeliness, and 

responsiveness of GSA in meeting federal agency needs. GSA will use customer data to drive 

continuous improvement.

We will continue to improve relationships with current and potential suppliers, and develop tools 

and processes to make it easier for suppliers to efficiently meet the needs of government 

customers. We will analyze market and vendor data to negotiate better rates, discounts, 

improved services and other benefits for federal agencies. We will increase vendor outreach 

and communications to strengthen trust with suppliers.

GSA will enhance federal government interaction with the American public by providing 

innovative tools and solutions that better enable the American public to access federal 

information; increasing federal use of existing public engagement tools, technology, and 

expertise; improving access and increasing the American public’s use of communication 

mediums aimed at public engagement.

Strategic Objective Goal Leaders: 

Tom Sharpe, Commissioner, Federal 

Acquisition Service (Lead Office)

Dorothy Robyn, Commissioner, Public 

Building Service

Dave McClure, Associate 

Administrator, Office of Citizen 

Services and Innovative Technologies 

Anne Rung, Associate Administrator, 

Office of Government-wide Policy

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress on savings targets and project milestones during 

bi-weekly management reviews. GSA evaluates external factors as we develop new strategies 

and initiatives. The current strategies for this objective include:

1. Increase customer loyalty through strategic partnerships with customers and an agencyspecific team approach to provide federal customers with access to customized support at 

all levels, from the agency executive through procurement decision makers.

2. Offer a multi-layered team of people and programs to capture the voice of the customer, 

identify and improve gaps, deliver customized analytics and recommendations, and further 

improve the value GSA offers for customer agencies.

3. Establish focused account strategies to ensure customers receive coordinated and 

consistent information, dedicated client representation understanding their strategies and 

needs, and an improved appreciation for how important their business and satisfaction are 

to GSA.

4. Ensure consistency with our building services delivery by improving communication with 

national managers and staff, and providing training courses. 

5. Continue to implement our smart building program so that improvements to our buildings 

will include consideration for building systems, occupants, the environment, energy 

sources, operating policy, capital and operating expenses, while meeting customer 

workforce expectations.
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6. Continue to administer the Supplier Relationships Survey and act on survey results to 

improve our processes and make it easier for suppliers to do business with us, while 

maintaining rigorous business controls and improving purchasing transparency for federal 

customers.

7. Leverage data to improve programs. 

8. Create tools and resources (reverse auctions, IT Solutions Navigator, etc) and offer 

regular training sessions that make it easier for agencies to identify and purchase GSAcontracted information technology solutions which fully meet their needs.

9. Meet with senior leadership of government agencies to promote GSA solutions and new 

awards, and help agencies identify ways to save money.

10. Improve the collection, analysis, and visualization of data to inform decision-making and 

lead to more effective policy development.

11. Demonstrate the viability and scalability of new governmentwide shared solutions and 

expand the use of solutions to deliver value, cost avoidance and excellent customer 

experiences to federal agencies.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services

Rental of Space

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. GSA strives to deliver excellent customer service to 

federal agencies and departments by making it easier for them to meet their real estate, 

acquisition and technology needs. In FY 2013, GSA experienced mixed success in meeting its 

performance improvement targets. GSA met its performance targets for customers and vendors 

for acquisition services; however, tenant satisfaction with buildings services declined.

In the last two years, GSA developed 10 new innovative, cost effective information technology 

solutions that increased government openness, including solutions that serve businesses with 

one-stop access to federal services, provide the public information about federal performance, 

engage the public in providing expertise on specific problems to Federal agencies, provide 

effective registration and management of government web sites, and streamline and leverage 

security assessments of innovative cloud computing products and solutions. These solutions 

contribute to an open, citizen-centric government. They enhance access to valuable 

government information and services by facilitating the exchange of ideas and knowledge 

between the government and the public.

As agencies begin adopting cloud computing, they face the challenge and expense of designing 

a method for keeping their systems secure. The GSA Federal Risk and Authorization 

Management Program (FedRAMP) eliminates the need for agencies to invest in creating their 

own security methods. FedRAMP substantially reduces costs for federal agencies by providing 

a standard approach for conducting security assessments and authorizations of cloud systems. 

Savings across agencies are estimated at a 50 percent reduction in staffing, 75 percent 
U.S. General Services Administration 

Annual Performance Plan and Report

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reduction in assessment time and $200,000 cost avoidance every time an agency leverages a 

FedRAMP authorization to operate.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next two years:

1. Increase tenant satisfaction with leased and owned space through building improvements, 

providing tenants with information on building energy usage, and other efforts; and 

2. Increase customer loyalty to FAS through improved offerings and better customer service 

while increasing supplier satisfaction with the federal acquisition process. 

3. Expand the use of established government-wide shared solutions that deliver value and 

cost avoidance and excellent customer experiences to partners by

Increasing the number of organizations using USASearch on their websites, 

Challenge.gov and the data center consolidation cost model; and

Expanding distribution of publications. 

4. Demonstrate viability and scalability of new Government-wide shared solutions that deliver 

value and cost avoidance and excellent customer experiences to our partners by creating 

a cloud innovation platform.

5. Enable our partner agencies to transform delivery of Digital Services to achieve open, 

transparent government and drive innovation by improving quality, consistency and 

transparency of the web analytics government-wide Digital Analytics Program.

6. Enhance quality and customer experience for Citizen Services by

Improving access for citizens to get governmental information and services from any 

device; and

Providing integrated, quality experience to all citizens accessing government 

information and services.
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Performance Goals.

Strategic Objective 3.1: Enhance relationships with customers, suppliers and stakeholders

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 3.1.1 – Improve customer satisfaction with government-owned and leased space

Tenant satisfaction with government-owned 

and leased space↑

76% 73% 83%

63% 75% 77% Target Not Met

Performance Goal 3.1.2 – Achieve customer loyalty and supplier satisfaction with acquisition services

Customer loyalty with acquisition services↑ 8.0 7.6 8.3

7.6 7.8 8.0 Target Not Met

Supplier satisfaction with acquisition 

services↑

NA 3.00

3.05

3.05 3.10 3.15 Target Met

Performance Goal 3.1.3 – Drive greater transparency and innovation in government

Cumulative number of innovative solutions↑ 0 5

10

10 15 20 Target Met

Performance Goal 3.1.4 – Increase Citizen Engagement

Citizen touch points in millions↑ 272 539 674

1,018 1,119 1,231 Target Exceeded

Number of citizen engagement events or 

activities conducted by Federal agencies 

(discontinued) ↑

344 114 109

113 - -

Target

Met

Number of attendees at OCSIT training 

events (discontinued) ↑

10,075 14,165 11,169 

10,102 - -

Target Not 

Met

Performance Goal 3.1.5 – Implement effective policy initiatives

Percent of key policy stakeholders who rate 

policy initiatives effective↑

84% 86% 80%

Not Avail 85% 85% Not Available

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
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Annual Performance Plan and Report

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Performance Goal 3.1.1 – Improve customer satisfaction with government-owned and 

leased space

GSA will increase overall tenant satisfaction to 75 percent in FY 2014 and 77

percent in FY 2015.

This survey measures how well GSA provides work spaces and building services; improves 

tenant communications; encourages collaboration among regions and customers; and ultimately 

helps determine the best value provided to agencies and the American public. Since we are 

replaced the traditional paper survey with an electronic survey, we anticipated a lower response 

rate. Trending data from our past paper versus web surveys shows that web surveys tend to 

have lower response rates.

The survey assesses how well GSA is meeting occupant expectations concerning building 

management services, and helps ensure that Federal employees occupy well-managed 

workspaces that support their work productivity

Benefit to the Public. This measure assesses how well GSA lessors (i.e., property 

owners/managers) are meeting federal workforce expectations concerning building 

management services and that federal employees occupy well managed workspace that 

supports their work productivity.

Performance and Contextual Indicators.

Customer satisfaction with government-owned and leased space. This performance indicator 

calculates the percentage of survey respondents who rate their overall satisfaction level with 

GSA service delivery as a “4” or “5” on a five-point scale.

Customer satisfaction with government-owned space. This contextual indicator reported 

customer satisfaction with leased space using the same methodology used for the overall 

indicator. GSA combined this indicator with the government-owned indicator for planning and 

reporting.

Customer satisfaction with leased space. This contextual indicator reported customer 

satisfaction with leased space using the same methodology used for the overall indicator. GSA 

combined this indicator with the government-owned indicator for planning and reporting. 

Progress Update. Trending data over the last 10 years shows that scores from the online 

survey have always been lower than those from the paper survey. FY 2013 was the first year 

GSA solely offered an electronic survey, we anticipated a lower score. Our result was a 63 

percent combined satisfaction score for government owned and leased buildings, with owned 

buildings reporting 65 percent satisfaction and leased reporting 61 percent satisfaction. We will 

continue to make improvements to the survey and its distribution process. In addition, GSA is 

making progress to ensure consistency with our building services delivery by improving 

communication with national managers and staff, and providing training courses. We will also 

continue our smart building program, which will improve building operations, reduce costs, and 

reduce energy usage, while working to meet our customers’ expectations.

Lead Office. Public Buildings Service
U.S. General Services Administration 

Annual Performance Plan and Report

APR-60

Performance Goal 3.1.2 – Achieve customer loyalty and supplier satisfaction with 

acquisition services

GSA will increase customer loyalty to 7.8 in FY 2014 and 8.0 in FY 2015.

Customer loyalty is highly correlated to the likelihood that customers will continue to use and 

recommend an organization's products and services to others. Providing a means for customers 

to meet their mission critical product and service needs enables agencies to focus on achieving 

their missions and providing the maximum value to the American public. GSA will achieve 

supplier satisfaction with acquisition services, and will measure supplier satisfaction through a 

survey first issued in FY 2012. This survey will provide a baseline of performance and identify 

areas for improvement.

Benefit to the Public. Achieving customer loyalty allows GSA to take action to achieve greater 

customer intimacy with its customers by using survey results to improve operations and improve 

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

customer agencies with goods and services are essential to service delivery. Through positive 

working relationships with suppliers, GSA is able to provide better service to customers through 

relationships that are mutually beneficial for the supplier and customer.

Performance and Contextual Indicators.

Customer loyalty. This performance indicator was established in FY 2011 to track customer 

loyalty and ensure that GSA Federal Acquisition Service is effective at meeting customer 

requirements. GSA customers are identified and the questionnaire is developed to ensure 

program offices have actionable recommendations for areas of improvement. This measure is 

the average score across three loyalty intentions items for each respondent. Responses are 

rated on a 10-point scale where 1=“Not at all likely” and 10=“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]?”

Supplier satisfaction (New). This contextual indicator measures the average score across 

twenty-three survey questions. Responses are rated on a 5-point scale where 1=“Much worse 

than other business partners,” 3= “About the same as other business partners,” and 5=“Much 

better than other business partners”. This indicator will be used as a performance indicator in 

FY 2014.

Progress Update. FAS achieved a customer loyalty score of 7.6, which did not meet the FY 

2013 target of 8.3. This target was based on results that were achieved during FY 2011 the first 

year the survey was executed, based on results for FY 2012 and FY 2013 of 7.6 in both years 

the targets for the survey require refinement to ensure targets are set that are attainable. GSA

revised the FY 2014 target for the survey from 8.5 to 7.8, which is an aggressive increase over 

the results achieved in FY 2013, and the FY 2015 target from 8.7 to 8.0. GSA has seen the 

vendor satisfaction score increase from 3.00 in FY 2012 to 3.05 in FY 2013 and is continuing to 

leverage the lessons learned and findings to make performance improvements.

Lead Office. Federal Acquisition Service
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 3.1.3 – Drive greater transparency and innovation in government

GSA will develop five new innovative, cost effective information technology 

solutions in FY 2014 and five additional in FY 2015.

The GSA Office of Citizen Services and Innovative Technologies will develop new, innovative 

solutions that enable federal agencies to better deliver their missions and enhance citizen 

engagement. An innovative solution is a new method, tool, or platform that solves a new or 

existing problem. By providing these shared government-wide solutions, GSA helps agencies 

save valuable resources while improving operational efficiency. These solutions contribute to an 

open, citizen-centric government, and they enhance access to valuable government information 

and services by facilitating exchange of ideas and knowledge between the government and the 

public.

Benefit to the Public. Innovative solutions are cost effective information technology solutions 

that increase government openness, including solutions to serve businesses with one-stop 

access to federal services, provide the public information about federal performance, engage 

the public in providing expertise on specific problems to federal agencies, provide effective 

registration and management of government web sites, and streamline and leverage security 

assessments of innovative cloud computing products and solutions.

Performance and Contextual Indicators.

Number of innovative solutions. Innovative solutions are cost effective information technology 

solutions that increase government openness, including solutions to serve businesses with onestop access to federal services, provide the public information about federal performance, 

engage the public in providing expertise on specific problems to federal agencies, provide 

effective registration and management of government web sites, and streamline and leverage 

security assessments of innovative cloud computing products and solutions.

Progress Update. GSA achieved five innovative solutions in FY 2013 which meets its target 

goal of five innovative solutions for the year. For more information on performance against this 

goal, see the FY 2013 - 2014 Agency Priority Goal performance results published on 

www.performance.gov.

GSA successfully launched the MYUSA Discover in Q3 FY 2013. The MYUSA Discover 

program consists of tools and application programming interfaces for connecting the 

government’s numerous websites. Agencies can embed this tool into existing web pages to help 

citizens discover services and information relevant to their interests and needs. MyUSA 

Discover re-imagines the relationship between the government and people. Rather than 

organizing government services according to the agencies that deliver them, MyUSA organizes 

services around people and the specific tasks they need to complete at all levels of government.

Lead Office. Office of Citizen Services and Innovative Technologies
U.S. General Services Administration 

Annual Performance Plan and Report

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Performance Goal 3.1.4 – Increase Citizen Engagement

GSA will increase the number of citizen touchpoints to 1.12 billion in FY 2014 and 

1.23 billion in FY 2015.

GSA will increase citizen engagement by increasing the number of citizen touchpoints.

Benefit to the Public. Citizen touch points deliver value for GSA and the public by providing 

easier access to essential government information, services, and engagement via the internet, 

phone, email, social media, and print. 

Performance and Contextual Indicators.

Citizen touch points. The performance indicator estimates the level of citizen awareness and 

usage of OCSIT information channels. Touch points are measured by counting website visits, 

direct and assisted telephone contacts, emails processed, publications distributed, email letter 

mailings, social media conversations, and telephone and email responses conducted under 

USA Contact Task Orders. Data for this indicator comes from WebTrends tracking reports, NCC 

and USA Contact contractor reports, and automated reports by the GSA telecommunications 

provider, publication distribution information reported through an automated inventory system, 

subscription e-mail and new media data.

Number of citizen engagement events and activities conducted by Federal agencies 

(Discontinue). GSA is discontinuing reporting of this indicator as a performance indicator in this 

report and plan, however, this indicator, or variations on this indicator, will continue to be 

tracked internally and may be used in some form as a contextual indicator to report performance 

at the strategic objective level. This contextual indicator reports the number of citizen 

engagement events or activities conducted by federal agencies using tools, technology, or 

expertise provided by GSA. This includes dialogues conducted using blogs, wikis or other online forums, and challenges launched using www.Challenge.gov. The indicator also includes the 

use of social media tools—such as Facebook, Twitter, and YouTube—for which GSA has 

negotiated terms of service on behalf of other federal agencies. The GSA tools, technology and 

expertise that Federal agencies use for their citizen engagement events and activities help them 

meet their missions and public engagement goals, while increasing efficiency in a cost effective 

manner supports the GSA mission. Also, expanding the number of federal agencies’ citizen 

events and activities helps the public more easily access government information and services 

when and where they want, through their device of choice. 

Number of attendees at OCSIT training events (Discontinue). Due to the shift in the format of 

training for this output indicator, GSA is discontinuing reporting of this indicator as a 

performance indicator in this report and plan. This indicator, or variations on this indicator, will 

continue to be tracked internally and may be used in some form as a contextual indicator to 

report performance at the strategic objective level. This contextual indicator reports the number 

attendees participating in classroom and on-line training events offered to agencies across the 

federal government to improve the customer experience. OCSIT offers practical training for 

government web and contact center managers to improve service to citizens. OCSIT helps build 

agencies’ capacity to improve the customer experience for citizens interacting with Federal 

agencies via the web, social media, contact centers and other channels. GSA is observing a 

shift in demand from classroom/in person training to virtual/on-line training.

Progress Update. GSA exceeded the target of 647 million touchpoints with 1,017 million 

touchpoints in FY 2013. However, GSA did not meet the target for training attendance. In FY 
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2013 GSA Office of Citizen Services and Innovative Technologies trained 10,102 people: 1,067 

below the annual target of 11,169. This shortfall was due to the Digital Government conference 

being cancelled, which resulted in lower than anticipated number of people trained.

Lead Office. Office of Citizen Services and Innovative Technologies
U.S. General Services Administration 

Annual Performance Plan and Report

APR-64

Performance Goal 3.1.5 – Implement effective policy initiatives

GSA will implement effective policy initiatives that result in 80 percent of key 

policy stakeholders and agency users rating GSA Office of Government-wide 

policy initiatives as effective in FY 2014 and FY 2015.

As a result of specific analysis, direction from OMB, or collaboration with agency partners, OGP 

pursues specific policy initiatives to advance governmentwide efficiency and effectiveness.

Benefit to the Public. This measure supports OGP’s mission to drive evidence-based policy to 

enable the delivery of effective and efficient government. In FY 2012, OGP included ratings of 

the effectiveness of our policies in helping federal agencies to achieve cost savings, which 

benefits federal agencies and the public.

Performance and Contextual Indicators.

Percentage of key policy stakeholders and agency users who rate policy initiatives effective. 

This performance indicator calculates the percentage of survey respondents who rate specific 

Office of Government-wide Policy initiatives as effective or very effective on a five-point scale. 

Each year, we surveys key stakeholders and agency users on policy initiatives in the annual 

portfolio (portfolio policy initiatives change from year to year). This indicator helps GSA to drive 

evidence-based policy to enable the delivery of effective and efficient government. 

Progress Update. Performance results are currently not available for this performance 

indicator. Under our new leadership, GSA Office of Government-wide Policy has taken a 

strategic and comprehensive approach to survey administration--so that we have a more 

complete picture of how are stakeholders assess and view the policy work produced by GSA. A 

decision was made late in the fiscal year to stop our previous survey instrument and institute a 

new one, which will cover a broader range of our work and stakeholders. The new survey is 

more comprehensive; as a result, survey results will not be available until after the publication of 

this document.

Lead Office. Office of Government-wide Policy
U.S. General Services Administration 

Annual Performance Plan and Report

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Strategic Objective 3.2: Support small and disadvantaged business

GSA will collaborate with industry on federal acquisition requirements and best practices to 

promote opportunities for small, disadvantaged, women-owned, historically underutilized 

business zones, and service-disabled veteran–owned small businesses. GSA will continue to 

educate the acquisition workforce on the importance of meeting socio-economic goals and 

assure small business considerations are made throughout the acquisition life-cycle in 

accordance with the Federal Acquisition Regulation in order to maximize small business 

opportunity in procurements.

Strategic Objective Goal Leaders: 

Jiyoung Park, Associate Administrator, 

Office of Small Business Utilization 

(Lead Office)

Tom Sharpe, Commissioner, Federal 

Acquisition Service

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Increase participation in acquisition planning, internal procurement compliance reviews, 

and prime contractor subcontractor compliance reviews. 

2. Advise on revision of small business policies. 

3. Enhance analytic, performance monitoring and reporting capabilities.

4. Streamline outreach program efficiency and effectiveness.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Electronic Government

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services

Operating Expense

Rental of Space

Transportation Audits

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. 

Delivering the best value for government and the American people requires taking advantage of 

all resources. Central to that approach is expanding opportunities for small businesses 

throughout the country. In FY 2012, GSA spent $1.3 billion through small businesses and 

received our second consecutive A+ rating from the SBA. The GSA Multiple Award Schedules 

is one way GSA provides small and disadvantaged businesses access to the federal 

marketplace. In FY 2013, 37 percent of the business conducted through the Multiple Award 

Schedules was awarded to small and disadvantaged businesses compared to an annual target 

of 33 percent.
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In FY 2012, GSA exceeded all small business prime contracting goals. GSA continued to build 

agency-wide communication and engagement at all levels and business units to highlight 

successes and call GSA staff to action. GSA also focused on expanding opportunities for 

veterans firms and meeting and exceeding our service-disabled veteran-owned small business

goal, the only goal we missed in FY 2011. 

GSA cascaded its national small business contracting priorities into actionable plans at the 

buying activity level, and worked closely with Small Business Administration Procurement 

Center Representatives. Each regional GSA small business utilization center developed a FY

2012 plan focused on goal achievement for the regional buying activity for which they are 

responsible.

Preliminary data show that in FY 2013, GSA exceeded all small business prime contracting 

goals with the exception of HUBZone. During FY 2013, senior leadership at GSA clearly 

communicated the importance of small business procurements and achieving small business 

contracting goals. On March 18, 2013, GSA’s Administrator, Dan Tangherlini, issued a 

memorandum encouraging the agency to expand contracting opportunities for small 

businesses. The memorandum reinforced that meeting and exceeding agency-wide small 

business goals is a priority at GSA.

During the reporting period, GSA experienced challenges in meeting its historically underutilized 

business zone (HUBZone) goal. Despite aggressive efforts to meet the three percent HUBZone 

prime contracting goal, based on preliminary data, GSA awarded 2.59 percent of its contracts to 

HUBZone small businesses. Expanding opportunities for HUBZone small businesses is a 

priority at GSA and we are focused on meeting the three percent goal. During FY 2014, GSA 

will implement the following initiatives to improve goal performance: conduct quarterly 

procurement forecast reviews with senior leadership and increase acquisition planning 

collaboration; enhance acquisition workforce training; create a HUBZone/ service-disabled 

veteran-owned small business Center of Expertise; conduct targeted HUBZone outreach.

GSA is committed to expanding subcontracting opportunities for small businesses. Preliminary 

FY 2013 data show that GSA exceeded its subcontracting goal for small disadvantaged 

business. According to data reported to date, GSA currently is not meeting its subcontracting 

goals for small business, women-owned small business, HUBZone, veteran-owned, or servicedisabled veteran-owned small business. Note that summary subcontract reports are still being 

submitted, reviewed, and accepted in the Electronic Subcontracting Reporting System (eSRS). 

Achievements will not be final until the Small Business Administration retrieves the final FY

2013 eSRS Federal Procurement Subcontract Report on February 19, 2014.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next year:

1. GSA will enhance procurement forecasting, acquisition planning, and contract spend 

monitoring processes to provide greater transparency to small businesses and GSA 

management of contract opportunities for small businesses throughout the fiscal year.

2. To build agency-wide engagement, GSA will provide training and informational resources 

for the acquisition workforce, including an agency-wide action plan focused on expanding 

opportunities for service-disabled veteran-owned small businesses and historically 

underutilized business zone firms, two areas that are historically challenging for GSA. 

3. GSA will promote small business through workshops and communications utilizing social 

and other media. 
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4. To improve subcontracting performance, GSA will conduct training for the acquisition 

workforce and increased prime contractor accountability by conducting Subcontracting 

Compliance Reviews with the Small Business Administration.

5. GSA will monitor subcontracting plans and reports included in annual Procurement 

Management Reviews. 

6. GSA will continue to encourage teams to promote and negotiate aggressive 

subcontracting plan goals, and monitor prime contractors’ subcontracting achievements.

7. Conduct targeted conversations with regional and business line leadership where 

subcontracting goals are not being met.

8. Continue to publish subcontracting goals and progress to the internal GSA Office of Small 

Business Utilization subcontracting website on a weekly basis.

Performance Goals.

Strategic Objective 3.2: Support small and disadvantaged business

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal 3.2.1 - Meet small business contracting and subcontracting goals

Percent of dollars awarded to small business 

prime contracting (New) ↑

34.2% 40.1% 30.0%

37.0% 40.0% ** Target Exceeded

Performance Goal 3.2.2 – Meet small business subcontracting goals

Percent of dollars awarded to small business 

through subcontracting (New) ↑

32.1% 26.0% 25.0%

24.6% 25% ** Target Not Met

Performance Goal 3.2.3 – Achieve small business targets on the Multiple Award Schedules

Percent of MAS business volume from small 

businesses ↑

33.5% 34.0% 33.0%

34.7% 33.0% 33.0% Target Exceeded

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range

** FY 2015 plan to be determined based on negotiations with Small Business Administration
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Performance Goal 3.2.1 – Meet small business contracting and subcontracting goals

GSA will award 40 percent of eligible dollars to small businesses in FY 2014 and 

will award the FY 2015 target of eligible dollars to small businesses negotiated 

with the Small Business Administration in FY 2015.

The GSA small business goals are set based on guidance from the Small Business 

Administration. Each major procuring business line at GSA contributes to achieving its share of 

the agency-wide small business goals to enable GSA to meet its agency-wide prime contracting 

goals.

Benefit to the Public. This goal helps increase small business access to the GSA nationwide 

procurement opportunities. Meeting this goal will provide opportunities for small businesses to 

create jobs and drive the economy forward.

Performance and Contextual Indicators.

Percent of dollars awarded to small business prime contracting (New). This performance 

indicator measures the overall percentage of eligible procurement dollars awarded to: (1) small 

business, (2) woman owned small business, (3) small disadvantaged business, (4) service 

disabled veteran owned small business, and (5) historically underutilized business zone 

business. This indicator excludes mandatory sources, contracts not governed by the Federal 

Acquisition Regulations, and product service codes for leasing. Targets for the goal categories 

are negotiated annually between the Small Business Administration and the GSA Office of 

Small Business Utilization based on analysis of historic and projected trends in procurement 

spend. Performance data for this indicator is generated from a snap-shot of the Federal 

Procurement Data System (FPDS). For more information about the data, data sources, and 

data timeliness, please see http://smallbusiness.data.gov/learn?tab=Sources%20of%20Data.

Progress Update. Based on preliminary numbers, GSA awarded 37.0 percent of eligible dollars 

to small businesses in FY 2013 and exceeded the target for this goal of 30 percent. Final 

performance numbers will be available in March 2014 and will be posted on the Small Business 

Administration’s scorecards available at http://www.sba.gov/content/small-businessprocurement-goaling-scorecards.

Lead Office. Office of Small Business Utilization
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Performance Goal 3.2.2 – Meet small business subcontracting goals

GSA prime contractors will award at least 25 percent of eligible dollars to small 

business subcontractors in FY 2014 and award the FY 2015 target of eligible 

dollars small businesses negotiated with the Small Business Administration in FY 

2015.

The GSA small business goals are set based on guidance from the Small Business 

Administration. Each major procuring business line at GSA contributes to achieving its share of 

the agency-wide small business goals to enable GSA to meet our agency-wide subcontracting 

goals.

Benefit to the Public. This goal help increase small business access to the GSA nationwide 

procurement opportunities. Meeting this goal will provide opportunities for small businesses to 

create jobs and drive the economy forward.

Performance and Contextual Indicators.

Percentage of dollars awarded to small business through subcontracting (New). This 

performance indicator measures the overall percentage of eligible subcontracting procurement 

dollars award to: (1) small business, (2) woman owned small business, (3) small disadvantaged 

business, (4) veteran owned small business, and (5) historically underutilized business zone 

business. Service-disabled veteran-owned small business, a subset of veteran owned small 

business, is also reported. This indicator excludes mandatory sources, contracts not governed 

by the Federal Acquisition Regulations, and product service codes for leasing. Targets for the 

goal categories are negotiated annually between the Small Business Administration and the 

GSA Office of Small Business Utilization based on analysis of historic and projected trends in 

procurement spend. Performance data for this indicator is generated from a snap-shot of the 

Electronic Subcontracting Reporting System (eSRS).

Progress Update. Based on preliminary numbers, GSA prime contractors awarded 24.6 

percent of eligible dollars to small businesses in FY 2013 and did not meet the target for this 

goal of 25 percent. Final performance numbers will be available in March 2014 and will be 

posted on the Small Business Administration’s scorecards available at 

http://www.sba.gov/content/small-business-procurement-goaling-scorecards .

Lead Office. Office of Small Business Utilization
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Performance Goal 3.2.3 – Achieve small business targets on the Multiple Award 

Schedules 

33 percent of business on the Multiple Award Schedules will be awarded to small 

business in FY 2014 and FY 2015.

GSA establishes long-term governmentwide contracts with commercial firms to provide access 

to millions of commercial products and services at volume discount pricing. These Multiple 

Award Schedules advances the socio-economic business goals of the Administration by 

providing channels through which GSA and customer agencies can access the small business 

segment of the market.

Benefit to the Public. Meeting this goal will provide opportunities for small businesses to create

jobs and drive the economy forward.

Performance and Contextual Indicators.

Percent of MAS business volume coming from small businesses. This performance indicator 

reports the percentage of Multiple Award Schedule business volume that is attributed to small 

businesses each year by calculating the GSA Multiple Award Schedules total business volume 

attributed to small businesses and dividing it by the total business volume.

Progress Update. 34.7 percent of MAS business volume was provided by small business in FY 

2013, which exceeded the target of 33.0 percent. The MAS program continues to be a tool for 

agencies to meet their mission critical needs and provides a channel for small businesses to 

access and serve the federal market.

Lead Office. Federal Acquisition Service
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Management Objectives

GSA is committed to building its capabilities to deliver its mission at the best possible value to 

its customers and the American people. To meet this challenge, we are building a stronger GSA 

by making sure our own employees at GSA are getting the same high quality support that we 

give partner agencies. This includes delivering a mission-ready workforce, streamlining our

information technology, and improving data quality and reporting. 
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Management Objective M.1: Deliver a mission ready workforce

GSA will deliver a high performing workforce by focusing on mission critical occupations such as 

acquisition, financial management, real property management and information technology. We

will continue to invest in growing employee knowledge, skills, and abilities through improved 

performance management, training and developmental opportunities. We will become a leaner, 

more efficient, results oriented workforce by utilizing data analytics and improving human 

resource service delivery models to help leaders drive their business and deliver results.

Strategic Objective Goal Leader.

Tony Costa, Chief Human Capital Officer, Office of Human Resource Management

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors are considered as new strategies are 

established. The current strategies for this objective include:

1. Enhancing the strategic alignment of agency activities;

2. Maintaining quality leadership;

3. Developing human capital knowledge and closing the gaps between the current and 

desired workforce capabilities.

Contributing Programs. The following program, defined in the Federal Program Inventory, 

contribute to this objective.

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Electronic Government

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services

Operating Expense

Rental of Space

Transportation Audits

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. GSA has consolidated shared functions to cut costs 

and improve efficiencies. In FY 2013, GSA enhanced agency human resource operations by 

establishing enterprise-wide procedures and improved process management, and laying the 

foundation for service level agreements. These initiatives helped GSA to reduce the time to hire, 

create standard position descriptions for critical job series and improve overall processing time.

In order to further human capital knowledge and planning, GSA began the process of validating 

core and professional competencies for mission critical occupations in order to solidify a new 

competency model for GSA.

To help increase engagement, GSA implemented an agency-wide automated individual 

development planning tool that will ensure that all employees are provided with the skills they 

need to perform current and future work. The use of Project Network and partnering with the 

Department of the Treasury to provide leadership development training has enabled GSA to 

fulfill its mission while giving employees opportunities to learn and grow. GSA also conducted 

an in-depth analysis of the current performance management program, looked at best practices, 
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and created a new framework that will set clear and achievable performance expectations and 

increase opportunities for employees to build their skills sets.

Finally, in order to increase efficiency and reduce the redundancy in reporting, GSA worked with 

the Office of Personnel Management to pilot a HRStat program to improve its data analytics and 

performance measurement capabilities. Using the results of this pilot program, GSA will 

strengthen its human capital performance metrics and ensure that they are aligned with the 

needs of the agency as a whole.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective:

1. Increase GSA strategic competence by

Enhancing the effectiveness of human resource delivery;

Promoting effective hiring programs and workforce practices; and

Enhancing GSA human resource operations through the establishment of enterprisewide procedures and implementation of service level agreements and performance 

commitments.

2. Enhance strategic alignment by

Partnering with GSA Services and giving them the tools necessary to help them plan 

for and build a mission ready workforce; and

Creating a comprehensive performance management system that aligns GSA’s

mission, goals and priorities with organizational commitments.

3. Maintain quality leadership by

Conducting workforce planning consistently across the organization;

Focusing on key strategic and operational metrics to move the organization forward in 

reaching its future state such as reducing the time to hire; and

Inventorying current capabilities of GSA mission critical occupation workforce, identify 

“best in class” metrics and targets for mission critical occupation workforce, and close 

gaps between current and desired workforce capabilities.

Performance Goals.

Management Objective 1: Deliver a mission ready workforce

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal M.1.1 – Reduce time to hire

Time to hire (in days) (New) ↓ 89 96 80

86 80 80 Target Not Met

Performance Goal M.1.2 – Increase EVS employee engagement score

EVS Employee Engagement Score (New) ↑ 71% 69%

69%

69% 71% 72%

Target 

Met

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
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Performance Goal M.1.1 – Reduce time to hire

GSA will achieve a time to hire of 80 days in FY 2014 and FY 2015.

GSA will enhance human capital knowledge and GSA strategic competence by reducing the 

time to hire. The current administration has issued a call to agencies to put in place commonsense hiring processes and to reduce the complexity of agency hiring. Reducing the time to hire 

enables GSA to gauge the timeliness and success of its hiring process. 

Benefit to the Public. Reducing the time to hire will improve staffing efficiency, and enable 

GSA to fill staffing vacancies in a timely manner.

Performance and Contextual Indicators.

Reduce the time to hire (New). This performance indicator broadly reflects the total elapsed time 

required to staff an open position. For each vacancy, the following is calculated: the total 

calendar days between the date the initial request for personnel action was received in human 

resources and the actual date that the selectee entered on duty into the position. Once the 'time 

to hire' data is calculated for each vacancy, the hire days are added together and then divided 

by the total number employees to arrive at the average time to hire in days.

Progress Update. In FY 2013, the GSA average time to hire was 86 days, which did not meet 

the target of 80 days but was an improvement over FY 2012 performance of 96 days. This 

improvement in performance can be attributed to GSA establishing new and effective tracking 

mechanisms and enhancing the management engagement in the process. In FY 2014, GSA will 

continue to review internal processes to gain a better understanding of the gaps that exist and 

will continues to focus on process improvement that will result in more efficient in hiring.

Challenges to meeting this goal include factors outside of control of GSA, including: the time it 

takes for security clearances to be completed and the time from when the offer is made and the 

employee chooses to start in the position. Adjusting for these factors resulted in an average 

time of 69 days from requisition to tentative job offer in FY 2013.

Lead Office. Office of Human Resource Management 
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Performance Goal M.1.2 – Increase EVS employee engagement score

GSA will increase the employee engagement score to 71 percent in FY 2014 and 

72 percent in FY 2015.

GSA will maintain quality leadership and increase employee engagement.

Benefit to the Public. Engaged employees show greater concern for customers, productivity, 

performance and quality. Engaged worked are more productive, provide higher customer 

service, have lower absenteeism and turnover than un-engaged employees. Creating an 

engaged workforce support improved operational efficiency, effectiveness and enhance service 

delivery.

Performance and Contextual Indicators.

EVS employee engagement score (New). All agencies are accountable for ensuring that the 

Federal Government recruits, retains, and honors a world-class workforce. An engaged 

employee is seen as one who is immersed in the content of the job and energized to spend 

extra effort in job performance. The 2013 Federal Employee Viewpoint Survey does not contain 

direct measurements of employee engagement such as passion, commitment, and involvement. 

However, it does include questions that cover most, if not all, of the conditions likely to lead to 

employee engagement (e.g., leadership, opportunity to use skills). OPM created an index using 

these items and excluded any items measuring satisfaction in order to differentiate this index 

from a job satisfaction index. An agency can look at the various items that comprise each index 

to get a richer understanding of the areas they are doing well in and areas that need 

improvement. The Employee Engagement Index is made up of three subfactors: Leaders Lead, 

Supervisors, and Intrinsic Work Experiences.

Progress Update. The decrease in this score is due to a variety of internal and external 

environmental factors such as sequestration, budget, travel and training cuts, annual pay 

freezes and consolidation efforts. Although this decline in engagement index is consistent with 

the overall drop in government-wide engagement, the GSA engagement score remains five 

percentage points higher than the government-wide average. GSA is implementing several 

initiatives to increase engagement, including: redesigning supervisor training, updating the 

award policy and non-monetary recognition program, revamping the performance management 

system and ensuring that all individual performance plans are aligned to the agency priorities 

and goals.

Lead Office. Office of Human Resource Management
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Management Objective M.2: Streamline information technology and improve data quality 

and reporting 

GSA will deliver quality information technology (IT) to efficiently support our internal operations 

and to provide high-valued products and services to our external business partners. To meet 

that challenge by FY 2018, we will change the way we deliver technology to our agency by 

integrating GSA IT services into a unified IT organization supported by a superior workforce. We 

will shift our culture from a decentralized business model to one with an enterprise-wide focus 

that makes transparent, data-driven decisions enabling innovative and collaborative solutions.

GSA will be a trusted advisor and partner, leveraging IT to deliver best value and innovative 

solutions for high quality outcomes. Our core values and guiding principles drive our decision 

making and our operational models. We will work as a team to deliver on commitments to our 

stakeholders as we support the GSA mission. In our execution of IT services, we incorporate 

our business knowledge and technology expertise to choose the best solution available. 

Consolidating enterprise IT services will leverage our resources, while efficiently providing 

capabilities needed across the GSA enterprise. We will focus on designing and delivering 

“simpler” IT which means improved access to IT, making IT easier to understand and use, and 

providing effective IT tools for GSA stakeholders.

GSA understands not only how fiscal constraints affect both our internal and external 

customers, but also how technology can be leveraged to best support mission needs. Through 

our governance processes, we will make structured, evidence-based investment decisions. 

While we continue to remain invested in technology innovation, we will balance innovation with 

the use of mature, standard processes and technologies that effectively meet user needs and 

create value. We are leveraging the technology surge of the social era to innovate the way we 

work together; we are standardizing on an agency-wide social networking platform and using 

other technologies that allow our employees to connect virtually from anywhere. Smart 

application of technologies saves money and allows for collaboration to generate good ideas.

Strategic Objective Goal Leader.

● Sonny Hashmi, Acting Associate Administrator, Office of the Chief Information Officer

Strategies. GSA will track progress on this objective using performance indicators and 

contextual indicators, and will review progress toward savings targets and project milestones 

during bi-weekly management reviews. External factors that could impact progress on this 

objective will be monitored and considered as new strategies are established. The current 

strategies for this objective include:

1. Improve the quality of our data and reporting by creating a list of categories to enable the 

search, discovery and reuse of enterprise data.

2. Develop data management services to improve the quality of GSA IT data, reporting and 

business analytics.

3. Improve business systems by consolidating applications and improving strategic customer 

engagement;

4. Modernize the GSA IT environment by providing key application access from mobile 

devices; and

5. Consolidate the GSA IT portfolio to better manage the Agency’s investment in information 

technology.
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Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Rental of Space

Travel, Motor Vehicle and Card 

Services

Strategic Objective Progress Update. GSA continues to make steady progress on 

consolidating information technology (IT) capabilities and operations. In FY 2013, GSA

completed the transition and consolidation of IT Security, Enterprise Planning and Governance, 

and IT Infrastructure Operations. We also made notable progress in establishing rigorous 

governance processes by standing up the GSA Investment Review Board, the Enterprise IT 

Board and implementing a Milestone Review Process to ensure effective management controls 

are in place for our IT investment portfolio. Consolidation and integration have allowed us to 

identify efficiencies and eliminate duplication in the areas of platforms, security, and contract 

services with the additional management control and visibility fostered by consolidation, we 

continue to make progress in implementing a single, consolidated enterprise services platform 

and in identifying cost efficiencies through shared services.

Strategic Objective Next Steps. GSA will take the following actions in support of this strategic 

objective over the next year:

1. Streamline information technology and provide enterprise solutions to create a simplified 

end user environment; and

2. Create a comprehensive view of the GSA information technology portfolio to provide a 

better understanding of the total information technology spend.

Performance Goals.

Management Objective 2: Streamline information technology and improve data quality and reporting

Performance Goals and Indicators FY11

Actual

FY12

Actual

FY13

Plan/Actual

FY14

Plan

FY15

Plan

FY13 

Status

Performance Goal M.2.1 – Successfully implement consolidated enterprise information technology services

Number of consolidated enterprise 

information technology services successfully 

implemented (New) ↑

0 0

2

2

3 4 Target 

Met

Commodity information technology savings 

(Contextual Indicator) ↑

- - 6% - - NA

Desired direction of performance: ↑= increasing ↓= decreasing ↔ = within range
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Performance Goal M.2.1 – Successfully implement consolidated enterprise information 

technology services

GSA will increase the number of consolidated enterprise information technology 

services successfully implemented to 3 in FY 2014 and 4 in FY 2015.

GSA Information Technology (IT) is assessing the consolidated IT services and functions. We 

are changing reporting lines, and identifying ways to consolidate funding, services and 

portfolios. To streamline IT and provide enterprise solutions, we will create a simplified 

environment. We aim to meet the needs of our customers by providing standardized technology, 

commodity IT, and enterprise information technology services. Consolidated services provide an 

opportunity to increase innovation, enhance effectiveness, improve efficiency and reduce risk. 

Benefit to the Public. This approach will allow GSA IT to realize cost savings and increase 

operational efficiency in delivering IT services to both internal and external customers. 

Performance and Contextual Indicators.

Number of enterprise information technology services successfully implemented (New). This 

performance indicator tracks the cumulative number of enterprise information technology 

services successfully implemented.

Commodity information technology savings (Contextual Indicator). This performance indicator is 

defined as the reduction in commodity information technology purchases from previous year 

spend. Cost reduction to commodity IT includes costs for items such as laptops, servers, and 

integrated support services. Proposed savings are estimated using all IT costs other than 

personnel, travel, rent, and non-IT management contracts.

Progress Update. GSA successfully implemented two consolidated enterprise information 

technology services in FY 2013. We consolidated multiple internal intranet sites into a single 

enterprise portal (InSite), and started the migration of enterprise services onto a single 

consolidated Enterprise Service Bus (ESB) solution. The timely identification and 

institutionalization of an ESB standard was critical to the success of this deployment. GSA plans 

to continue to add at least one enterprise information technology service per year over the next 

few years.

GSA reduced commodity IT purchases by six percent in FY 2013. This reduction was achieved 

through a cost management focus via a zero-based budget methodology, and is projecting 

continued reductions in commodity IT as a result of enterprise consolidation. The GSA IT 

Investment Review Board tasked the newly formed Business IT Board to propose reductions 

and reinvestments that focus on the external customer and making it easier to do business with 

GSA.

Lead Office. Office of the Chief Information Officer
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Management Challenges

GSA major management challenges and actions defined to address these challenges are 

available at http://www.gsa.gov/portal/mediaId/183579/fileName/InspectorGeneralsAssessmentsigned.action.

Evaluation and Research

The strategies, objectives, and goals outlined in the Annual Performance Planned were 

developed from comprehensive and continuous top-to-bottom reviews of the GSA program 

activities. These reviews commenced in 2012 and draw on data, experience, and constructive 

feedback from GSA stakeholders to assess the mission, priorities, and effectiveness of GSA 

operations with an eye towards increasing the efficiency of GSA while identifying both intra and 

inter agency cost savings opportunities GSA can pursue. Top-to-bottom reviews are iterative in 

nature; GSA will continue using the review process to thoroughly evaluate its operations and 

identify opportunities for improvement and innovation.

Program evaluation is one of the mandatory elements of the Government Performance and 

Results Act of 1993 (GPRA) and the GPRA Modernization Act of 2010. These statutes call for 

agencies to: use program evaluations to assess the manner and extent to which their programs 

achieve intended objectives; include a summary of the findings of program evaluations 

completed in their Performance and Accountability Reports with a notation if no evaluations 

were completed; and present a schedule for future program evaluations in Strategic Plans. GSA 

will continue to perform regular, data-driven reviews to guide decisions and actions to improve 

performance outcomes and reduce costs.

Data Validation and Verification

The GSA Chief Financial Officer certified the FY 2013 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 

include (1) maintaining a data dictionary of performance data which includes data sources, 

computation methodology, and reliability assessment for each performance measure; (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 2015 Cuts, Consolidations, and Savings (CCS) Volume of the President’s Budget identifies 

the lower-priority program activities 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.
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Appendix A: FY 2012-2013 Priority Goal Report

FY12-13 Priority Goal 1 - GSA will manage customer agency real estate portfolio needs in 

a cost-effective and environmentally sustainable manner

By September 30, 2013, the General Services Administration (GSA) will complete 

and begin implementation of client portfolio plans with nine agencies to identify 

opportunities and develop action plans to optimize their real estate portfolios 

through reducing space, improving utilization and leveraging market 

opportunities to reduce costs. 

Federal agencies traditionally assess and make real estate decisions on a decentralized, 

property-by-property, basis. Local decisions that look to remain in current properties or move to 

new properties may not take into account all considerations. Client portfolio planning engages 

each agency in an evaluation of how current workspace is being used and provides a holistic 

portfolio of the agency’s workspace priorities. These plans also provide an opportunity for GSA 

to recommend alternatives that take into account regional and national real estate market trends 

and changing workplace practices that promote better use of office, warehouse and other real 

property. In some cases, agencies can share properties to drive down costs and improve 

workplace conditions.

Progress Update. At a time when federal budgets are tightening for every federal agency, GSA 

is working to help our partners in the government find savings where they can. GSA is helping 

agencies reduce the strain of real estate on their budgets through a total of nine client portfolio 

plans for: the Department of State, the Social Security Administration, the Department of Health 

and Human Services, the Department of Commerce, the Security and Exchange Commission, 

the Federal Emergency Management Agency (FEMA), the Environmental Protection Agency 

(EPA), Immigration and Customs Enforcement (ICE), and the Federal Aviation Administration 

(FAA). In FY 2013, GSA completed client portfolio plans for the EPA, ICE and FAA.

GSA helps them reduce space, improve utilization and best utilize market opportunities. 

Through the client portfolio planning, we identified opportunities to reduce the federal footprint 

by 3.5 million square feet and save $115 million in rental expenses annually. Executing these 

opportunities would require $303 million in investment and result in a payback period of only 2.6 

years.

The GSA work to implement client portfolio plan opportunities on behalf of individual agencies 

has been successful. For example, GSA and FAA identified six high impact opportunities aimed 

at reducing FAA’s overall portfolio occupancy expenses to potentially save FAA $27 million 

annually and reduce their portfolio footprint by 627,536 rentable square feet.

GSA also worked closely with FEMA to significantly reduce their real estate footprint. FEMA 

requested that the GSA client portfolio planning team help FEMA meet their $10 million rent 

budget reduction. By developing a nationwide portfolio strategy, GSA identified nearly $12 

million in annual rent savings. FEMA agreed with the recommended strategies, including a 

consolidation of five leases into FEMA headquarters in Washington, DC. Before this 

consolidation, FEMA leased over 625,000 in rentable square feet, costing approximately $30 

million annually. By embracing innovative workplace strategies, FEMA is working with GSA to 

reduce the portfolio by over 200,000 rentable square feet, saving $9.7 million in annual rent. 

This savings represents a 33 percent reduction of FEMA’s DC portfolio and 11 percent 

reduction of FEMA’s nationwide portfolio.
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Additionally, GSA updated the six previously completed client portfolio plans for any new 

opportunities. These opportunities focus on: consolidating higher cost lease space into federally 

owned space, more effectively managing space through workplace strategies and improved 

office standards, and optimizing rents in depressed markets for favorable lease rates.

GSA is leading efforts to help the entire federal government use its space as efficiently and 

effectively as possible.

Strategies. GSA manages customer agency real estate portfolio needs in a cost-effective and 

environmentally sustainable manner through client portfolio planning. This strategy includes:

1. Identifying client portfolio plan candidates using an account segmentation model. GSA 

has national account managers assigned to each of its customer agencies. The account 

management network leverages an account segmentation model for selecting the best 

candidate agencies to engage in client portfolio planning each fiscal year. The selection criteria 

targets agencies with the highest chance of success and the largest number of opportunities.

2. Employing multi-discipline teams to identify and address opportunities. Portfolio 

planning is an intensive process that requires strong commitment from each participating 

agency. When an agency agrees to engage in the planning process, GSA employs multidiscipline teams to partner with the agency to define and develop high impact portfolio 

opportunities supported by strong business cases. This approach ensures that each agency 

benefits from a wider range of expertise – lease management, workplace solutions, property 

management, design, construction, property disposal, and real estate market analysis – to meet 

the full needs of each agency.

3. Leveraging existing GSA project delivery processes to implement projects. Cost-benefit 

analysis is used to prioritize which projects are to be implemented first. Each Customer Portfolio 

team will leverage existing GSA project delivery processes to efficiently implement projects in 

one or more regions. Each team works closely with the client agency throughout the project 

delivery lifecycle to address potential challenges. Upon project closeout, an outcome report is 

produced to identify achieved results against baseline and targets defined in original business 

case.

Performance Indicator - Number of completed portfolio plans. This indicator measures the 

number of completed portfolio plans between GSA and the customer agencies.

Fiscal Year Quarter Period Ending Target Value Actual Value

2012-Q4 September, 2012 6 6

2013-Q4 September, 2013 9 9

FY 2013 Q4 Performance Indicator Explanation of Variance. In fourth quarter FY 2013, GSA 

completed implementation of four client portfolio plan projects, enhanced portfolio analysis tools 

to provide greater ability to identify opportunities and continued to track the progress of projects 

in the implementation phase. 

GSA completed implementation of four CPP projects. GSA completed the implementation of 

four projects for four agencies: Federal Emergency Management Agency (FEMA), the 

Department of Health and Human Services, (HHS), the Department of State (DOS) and the 
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Social Security Administration (SSA). These projects will lead to more than $10 million in annual 

rent savings and are comprised of consolidation projects for FEMA, HHS, and DOS and a lease 

renegotiation to close a market gap for SSA. Outcome reports, developed and incorporated into 

the portfolio plans, show baseline and target comparisons to actual numbers for four projects:

1. FEMA (East End Washington, DC). This project saved $841,000 in annual rent, reduced 

their footprint by 21,000 square feet, and required only $314,000 in investment cost.

2. HHS – CDC (Atlanta, GA). This consolidation moved HHS out of GSA leases and into HHS 

controlled inventory. Factoring in the exiting of leases in GSA inventory, this project saved 

$8,400,000 in annual rent and reduced their footprint by 417,000 square feet. HHS costs

and real estate data were not available to provide a full accounting of outcomes.

3. DOS (400 C Street, Washington, DC). This project saves $532,000 in annual rent, reduced 

their footprint by 12,000 square feet, and required $0 in investment cost.

4. SSA (22nd Street, Oakland, CA). This project saves $714,000 in annual rent, reduced the 

footprint by 3,698 square feet, and required only $413,000 in investment cost.

GSA enhanced portfolio analysis tools to provide greater ability to identify opportunities. 

In the fourth quarter of FY 2013, GSA also modified its internal tools to better support 

opportunity management, portfolio data collection and analysis, and business case analysis.

Improvements in these tools resulted in a greater ability to uncover high impact opportunities in 

the agency’s portfolio and enabled the client portfolio planning teams to better qualify those 

opportunities through consistent business case methods and calculations.

GSA continued to track the progress of projects in the implementation phase. GSA 

worked with the six agencies that already had portfolio plans in place to implement projects. 

These projects aim to consolidate higher cost lease space into lower cost and underutilized 

federally owned space, manage leased space better through workplace strategies and improved 

office standards, and optimize rents in depressed markets to capture favorable tenant lease 

rates.
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FY12-13 Priority Goal 2 - GSA will drive greater transparency and openness in 

government

GSA will develop at least 10 new innovative, cost effective information technology 

solutions that increase government openness, including solutions to serve 

businesses with one-stop access to federal services, provide the public 

information about federal performance, engage the public in providing expertise 

on specific problems to federal agencies, provide effective registration and 

management of government web sites, and streamline and leverage security 

assessments of innovative cloud computing products and solutions.

GSA develops new, innovative solutions for federal agencies to better deliver their missions and 

enhance citizen engagement. An innovative solution is a new method, tool, or platform to solve 

a new or existing problem. By providing these shared government-wide solutions, GSA helps 

agencies save valuable resources, while improving operational efficiency. These solutions 

contribute to an open, citizen centric government, and enhance access to valuable government 

information and services by facilitating the exchange of ideas and knowledge between the 

government and the public.

For more information on some of the GSA programs under this goal please visit the links below.

● American Job Center: jobcenter.usa.gov

● BusinessUSA: business.usa.gov

● Data.gov Open data government platform (OGPL): www.data.gov/opengovplatform

● Digital Services Innovation Center: gsablogs.gsa.gov/dsic/2012/10/05/digital-analyticsprogram-helps-agencies-measure-web-performance/

● Federal Data Center Consolidation Initiative (FDCCI): cio.gov/maximizing-value/datacenter-consolidation/

● Federal Infrastructure Projects Permitting Dashboard: permits.performance.gov

● FedRAMP.gov: fedramp.gov

● HowTo.gov: www.howto.gov

● MyUSA: my.usa.gov

● Social Media Registry (Agency): www.howto.gov/social-media/social-media-registry

● Social Media Registry (Public): www.usa.gov/Contact/verify-social-media.shtml

Progress Update: In order to deliver the best value and service to the American people and our 

partners, GSA is committed to providing greater transparency and openness in government. To 

support this goal, GSA developed and implemented ten new, innovative, and cost-effective 

technology-enabled solutions that improve government effectiveness and create governmentwide cost savings. 

● Solution 1. American Job Center provides a single, streamlined website where job 

seekers and employers can access key federal programs and critical local resources to 

help people find a job, identify training programs, and gain skills in growing industries. In 

his 2012 State of the Union Address, President Obama outlined his vision for a single, 

streamlined website where Americans can access information that will improve their job 

prospects — a resource to help turn our unemployment system into a reemployment 

system that puts people to work. The American Job Center website consolidates 

information and services from across the government – access to job retraining and 

education opportunities, skills and career development and counseling -- into a single 
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online resource for both job seekers and for businesses looking to tap into the vast 

resource of skilled and dedicated workers around the country.

● Solution 2. The Federal Risk and Authorization Management (FedRAMP) Program 

provides federal agencies a standardized approach to cloud security assessment, 

authorization and monitoring. By using the FedRAMP program, federal agencies save 

money, time and staff resources. Savings across agencies are estimated at a 50 percent 

reduction in staffing, 75 percent reduction in assessment time and $200,000 cost 

avoidance every time an agency leverages a FedRAMP Authorization to Operate (ATO).

● Solution 3. Data.gov Open Government Platform (OGPL) provides an open source 

platform that developing nations, cities, and governments at any level can use to quickly 

launch their own open government platform. Using the OGPL lowers the cost of 

providing public access to government data and documents. The OGPL platform 

provides citizens with access to approximately 184,000 collections, including 400,000 

datasets, from 144 agencies and sub-agencies, allowing individual agencies to save 

money by not having to create their own data integration platforms. Over 236 citizendeveloped applications have been built by the public using the data provided. It is the 

centerpiece of the global open democracy movement, and has been emulated by over 

43 countries, 39 U.S. states, and 40 U.S. cities and counties seeking to increase 

transparency and accountability, while fostering innovation. End users are provided with 

opportunities to provide information feedback and ratings.

● Solution 4. BusinessUSA provides a centralized, one-stop web-based platform to 

support the development and expansion of small and medium sized businesses, to 

facilitate exports and to grow jobs. It is an online, one stop shop that makes it easier for 

American businesses to access the services and information they need to grow, hire and 

export. The site implements a “no wrong door” approach for small businesses and 

exporters by using technology to quickly connect businesses to the information and 

services relevant to them, regardless of where the information is located or which 

agency’s website, contact center, or office they go to for help. 

● Solution 5. Federal Infrastructure Projects Permitting Dashboard provides the public 

and agencies with a central website for visibility of high priority infrastructure projects, 

including descriptions of the expedited processes and status information on permits, 

reviews and approvals. It creates new opportunities for collaboration among the Federal 

agencies involved in a nationally or regionally significant project. For the first time, 

projects have a space in which the Government can answer key questions about 

accountability, status and purposes for the permits and actions required to make these 

projects shovel ready.

● Solution 6. Implemented in FY 2013, the Social Media registry provides a central, 

authoritative registry of authentic government social media accounts, enabling the public 

to easily differentiate legitimate government social media accounts from those that are 

fraudulent. 

● Solution 7. Implemented in FY 2013, the Digital Analytics Program and Toolkit provides 

federal agencies with best practices, guidance, training and a no-cost automated tool to 

measure effectiveness of and customer satisfaction of government websites. This 

solution enables effective, consistent government-wide measurement and analysis of 

federal website effectiveness and drive improvement in public-facing websites. Digital 
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Analytics Program implemented in 3,000 federal websites, reaching nearly 1 billion hits 

per month across government. This saved agencies close to 1 million in less than a 

year. All 24 CFO Act agencies are participating, providing an extraordinary array of web 

analytics and insight into website performance across government. 

● Solution 8. Implemented in FY 2013, the MYUSA (formerly MyGov) Discover program 

consists of tools and application programming interfaces (APIs) for connecting the 

government’s numerous websites. Agencies can embed this tool into existing web pages 

to help citizens discover services and information relevant to their interests and needs.

● Solution 9. Implemented in FY 2013, the Data Center Consolidation Cost Estimation 

Application is open source application that enables federal agencies to more accurately 

plan and estimate potential cost savings from data center consolidations and closures. 

● Solution 10. Implemented in FY 2013, MyUSA MyForms develops a prototype virtual 

environment that enables citizens to much more easily and effectively access 

information and services across government, transforming the way they interact with 

government.

Strategies: GSA provides greater transparency and openness in government by delivering 

shared solutions that enable agencies to more effectively and efficiently comply with and 

leverage government-wide policies. This strategy includes: (1) engaging key stakeholders to 

identify and explore areas of innovation, (2) collaborating with customers to identify gaps in 

existing capabilities, (3) developing innovative solutions in partnership with key stakeholders, (4) 

conducting frequent and extensive outreach and communication, and (5) monitoring the 

effectiveness of solutions.

1. Engaging key stakeholders to identify and explore areas of innovation. GSA engages 

with the Office of Management and Budget (OMB) and customer agencies to identify and 

explore potential areas where developing and implementing new technology- based solutions 

can better meet the needs of the government and its citizens. Opportunities are identified to 

meet commitments made by the Administration and Congress in statutes, laws and other 

policies to increase transparency, accountability and open government. GSA works with 

vendors and industry to identify emerging technologies or new adaptations of existing 

technologies that can best meet the needs of government and citizens. 

2. Collaborating with customers to identify gaps in existing capabilities. GSA collaborates 

closely with Federal Chief Information Officers, agency managers and other customers to 

identify gaps in existing capabilities that can be met through new, innovative solutions. 

3. Developing innovative solutions in partnership with key stakeholders. GSA works with 

stakeholders to to reform federal information technology, create cost savings and cost 

avoidances for agencies, facilitate using new and digital technologies to improve government 

operations and citizen engagement, and help enhance customer experiences across 

government. 

4. Conducting frequent and extensive outreach and communication. GSA’s frequent and 

extensive outreach across government, industry, and the press helps to identify technology 

solutions and also builds interest in adoption of the solutions. 
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5. Monitoring the effectiveness of solutions. GSA measures the effectiveness of solutions by 

tracking website use by citizens and other customers, with detailed metrics including website 

traffic from mobile devices and social media. Customer satisfaction and usability is determined 

using a variety of mechanisms, including online surveys and feedback forms.

Performance Indicator - The number of innovative technology solutions to drive 

transparency and open Federal government. This indicator is a count of the number of GSAprovided innovative solutions to federal agencies. An innovation solution is a new method, tool 

or platform to solve a new or existing problem.

Fiscal Year Quarter Period Ending Target Value Actual Value

2012-Q1 December, 2011 1 0

2012-Q2 March, 2012 2 0

2012-Q3 June, 2012 3 5

2012-Q4 September, 2012 5 5

2013-Q1 December, 2012 5 5

2013-Q2 March, 2013 7 7

2013-Q3 June, 2013 8 8

2013-Q4 September, 2013 10 10

FY 2013 Q4 Performance Indicator Explanation of Variance. In the fourth quarter of FY 

2013, GSA successfully launched two innovations: Data Center Consolidation Cost Estimation 

Application and the MyUSA Forms. 

The Data Center Consolidation Cost Estimation Application is a Total Cost of Ownership Model 

(TCM) that is a web based version of the current Microsoft Excel based tool. This application 

provides secure and role based access to interactive dashboard reports with enhanced user 

experience and collaboration capabilities. In addition, this application will reduce the operations 

and maintenance burden, address performance scalability issues faced by the excel tool, and 

provide select users with the ability to visualize the TCM reports and metrics computed against 

the entire set of data centers belonging to agencies. This application will eventually replace the 

excel based tool and greatly improve the ease of use and accessibility to TCM reports for GSA, 

the Office of Management and Budget and users in the over 24 federal agencies in the Federal 

Data Center Consolidation Initiative (FDCCI) program. 

MyUSA Forms provides an easy-to-use tool for agencies and organizations to quickly and easily 

create and host forms online and securely receive form submissions. In addition to providing a 

tool to easily create user-friendly forms, MyUSA Forms provides an application program 

interface (API) for every form, making it easy to build applications on top of one or more forms.
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FY12-13 Priority Goal 3 - GSA will increase the sustainability of the Federal Supply Chain

By September 30, 2013, GSA will increase the sustainability of the federal supply 

chain by expanding the number of “green” product and service offerings available 

to federal customers by 10 percent, and increasing the purchasing of GSA green 

products and services to 5 percent of total business volume. Green products and 

services have less of an impact on the environment or are less detrimental to 

human health than traditional equivalents.

Federal agencies have statutory and executive order requirements to

● purchase products with preferred environmental or energy attributes,

● engage in electronics stewardship,

● reduce use of toxic and hazardous chemicals,

● increase the energy and water efficiency of Federal buildings,

● increase the energy efficiency of fleet vehicles, and

● reduce their greenhouse gas (GHG) emissions.

GSA, as an intermediary in the market, provides an avenue through which commercially 

available products and services can be delivered cost effectively to federal agencies. In this 

role, GSA assists federal agencies in meeting environmental sustainability purchasing 

requirements by identifying and increasing the availability of green products and services. GSA 

does not have the authority to mandate other federal agencies to purchase green, but through 

education and outreach, is able to influence federal green purchasing.

Expanding Green Offerings. By September 30, 2013, GSA will increase the number of green 

product and service offerings available to Federal customers by 10 percent. Considering 

statutory and executive order requirements, GSA applied the following criteria to identify green 

products and services.

● Green Products: Includes products that assist agencies to meet environmental 

purchasing requirements, products with an environmental icon, or products which 

adhere to environmental standards or certifications. 

● Green Services: Services that involve the use of green products, or promote 

environmental sustainability goals, or including energy or environmental services.

Increasing Green Purchasing. By September 30, 2013, GSA will increase the purchasing of 

GSA green products and services to 5 percent of total business volume. GSA, by raising 

awareness about tools such as the Green Products Compilation Tool, will help agencies meet 

their sustainability goals and ultimately increase the sustainability of the Federal supply chain.

Progress Update: GSA is committed to a sustainable federal government. That means 

ensuring we are working to increase the sustainability of the federal supply chain by 

● Expanding the absolute number of green product and service offerings available to 

federal customers by 20 percent: from 273 thousand unique offerings at the end of FY11 

to 327 thousand offerings at the end of FY 2013, and

● Increasing the purchasing of GSA green products by 88 percent: from $1.29 billion at the 

end of FY11 to $2.4 billion at the end of FY 2013.

In FY 2013, GSA conducted a comprehensive review of all results against this priority goal and 

identified and corrected two reporting issues. 

1. Green business volume was overstated in FY 2012 due to a double count of alternative 

fuel vehicle purchases. GSA has updated performance.gov to correct this issue resulting 
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in a FY 2012 green business volume of 5.4 percent, instead of 6.9 percent previously 

reported.

2. The data used to identify the Green Offering baseline, establish target, and report FY

2012 results overstated the number of green offerings as identical items that were sold 

by multiple vendors were counted multiple times. This resulted in a revised baseline of 

1.35 percent, versus the previously reported 2.76 percent. The same methodology was 

applied to update targets. FY 2012 performance restated from 2.23 percent to 1.16 

percent compared to an updated target of 1.41 percent.

Discussion of green business volume performance and challenges.

GSA achieved 4.64 percent of its business volume as green in FY 2013 which fell short of the 5 

percent target and was down from the FY 2012 result of 5.44 percent. During FY 2012 there 

was a significant increase in property that was reutilized within the federal government that 

resulted in favorable performance on this metric, performance in this area returned to normal 

levels in FY 2013 resulting in less business being classified as green. In FY 2013 the overall 

business volume of GSA also was reduced as a result of sequestration and reduced federal 

budgets. While the reduction to business volume was approximately 5.3 percent from FY 2012 

to FY 2013 the reduction in spend in key categories for this measure was greater. The sale of 

environmental products within GSA Advantage was reduced by 11.6 percent from FY 2012 to 

FY 2013 and the sale of Alternative Fuel Vehicles was reduced by 8.7 percent over the same 

time period. These categories are two of the major contributors to this metric and led to an 

overall reduction in performance.

GSA is an intermediary to the market and provides an avenue through which commercially 

available products and services can be purchased by federal agencies. Since GSA does not 

have the authority to mandate other federal agencies to purchase green offerings, GSA must 

rely on education and outreach to influence federal green purchasing. This indirect role that 

GSA plays in the procurement decisions of customers continues to be one of the greatest 

challenges in increasing the percentage of business that is dedicated to green purchasing 

across the federal marketplace.

Discussion of green offering performance and challenges

GSA’s intent for this portion of the agency priority goal was to capture the number of services as 

well as products that are classified as green and are available to customer agencies to meet 

their needs. The lack of standards in this area continued to be an issue throughout the reporting 

period as there are not industry standards available to capture green services. It was anticipated 

during the development of this goal that industry would mature and such standards would be put 

forward for GSA to benchmark against. Considering that this did not materialize the metric 

remained primarily based on product offerings and was not able to meet its full intent. Regarding 

product offerings one of the greatest challenges is that vendor offerings for products change on 

a continuous basis and the dynamic nature of what is available makes it difficult to monitor 

success. While the total number of green products was higher at the end of the performance 

period additional items had also become available that were not classified as green. Therefore 

the percentage increase relative to all offerings was relatively unchanged during the reporting 

period. 

Strategies. The GSA strategy to increase the sustainability of the federal supply chain has two 

components. 

1. Expand GSA’s offering of green products and services by:
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● Continually reviewing offerings to ensure all items that meet the criteria of being green 

are classified as green,

● Updating the criteria of green to include federal and industry green standards for 

products and services as they are published,

● Researching market opportunities to expand product offerings to meet Federal customer 

requirements.

2. Increase federal purchasing of green products and services by:

● Identifying agency demand for green products and services through the review of 

agency strategic sustainability performance plans and use this information to inform 

marketing efforts;

● Raising awareness and educating federal agencies on the green products and services 

available and where to purchase them online; and

● Evaluating the use of its strategic capability of leveraging the buying power of the federal 

government through strategic sourcing to improve the price competitiveness of 

sustainable products and services available to federal agencies.

Performance Indicator - Expand Availability of Green Offerings. The Green Offerings 

indicator measures the number of green offerings as a percentage of the total number of 

offerings tracked through the GSA Federal Acquisition Service systems as of the end of the 

reporting period. 

Fiscal Year Quarter Period Ending Target 

Value

Target 

Value*

Actual 

Value

Corrected 

Value*

2011-Q4 September, 2011 2.76% 1.35% 2.76% 1.35%

2012-Q1 December, 2011 2.79% 1.36% 2.67% 1.37%

2012-Q2 March, 2012 2.81% 1.38% 2.71% 1.43%

2012-Q3 June, 2012 2.84% 1.39% 2.84% 1.32%

2012-Q4 September, 2012 2.87% 1.41% 2.23% 1.16%

2013-Q1 December, 2012 2.90% 1.42% 1.17% 1.17%

2013-Q2 March, 2013 2.92% 1.43% 1.19% 1.19%

2013-Q3 June, 2013 2.98% 1.46% 1.15% 1.15%

2013-Q4 September, 2013 3.04% 1.49% 1.24% 1.24%

* Updated targets and actual

FY13 Q4 Performance Indicator Explanation of Variance. GSA achieved a result of 1.24 

percent of its offerings being classified as green for FY 2013 relative to a target of 1.49 percent.

The predominance of this metric continued to be products that are offered through GSA 

Advantage and are classified as green. During the reporting of this metric in FY 2012 it became 

apparent early in the reporting cycle that the magnitude of individual products offered by GSA 

and the lack of standards related to green services making the capture of this information 

impossible severely impacted the ability of GSA to capture all data and use the data in an 

actionable manner to change performance. While the actual number of green products offered 

did grow over the performance period because of the expansive number of total offerings 

provided by GSA there was not a meaningful impact on the reported results.

It was acknowledged by GSA and OMB that this APG would be dynamic as a result of the lack 

of standards for green services and considering that item counts across the enterprise had not 

been conducted in the past for a discrete purpose as intended for this goal. At the end of FY 
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2012 during the measurement of the number of green products it was determined that flawed 

logic was being used to count green products in GSA Advantage. Each item was being counted 

each time it was provided even if the same item was provided by multiple vendors, as such if 

one item was carried by five vendors it was counted as five items rather than one. It was agreed 

that this was not the correct way to be conducting the inventory and a correction was made for 

all FY 2013 reporting so unique items were only counted one time regardless of the number of 

the number or vendors that supplied the items. This effectively reduced the green item count by 

half for all four quarters of FY 2013, however, this error needed to be corrected in the baseline 

and in all quarters of FY 2012 as well in order for the reporting to be comparable from FY 2012 

to FY 2013. GSA has made this correction and recalculated the quarterly targets using the 

same quarterly increases as used in the original target setting to achieve ten percent growth 

from the revised baseline using the corrected business rules.

Performance Indicator - Increase Green Purchasing. The Green Purchasing indicator 

measures dollars of green purchases as a percentage of the total dollars of business volume 

(purchases) tracked through the GSA Federal Acquisition Service systems. This indicator 

reports cumulative performance by fiscal year.

Fiscal Year Quarter Period Ending Target Value Actual Value Actual Value

(Adjusted)

2012-Q1 December, 2011 2.40% 1.12% 1.12%

2012-Q2 March, 2012 2.80% 4.05% 3.88%

2012-Q3 June, 2012 3.00% 7.66% 6.11%

2012-Q4 September, 2012 3.20% 6.90% 5.44%

2013-Q1 December, 2012 3.50% 1.98% 2.46%

2013-Q2 March, 2013 3.80% 3.06% 3.81%

2013-Q3 June, 2013 4.40% 4.96% 4.90%

2013-Q4 September, 2013 5.00% 4.64% 4.64%

FY 2013 Q4 Performance Indicator Explanation of Variance. GSA achieved an annual result 

of 4.64 percent of its business volume being dedicated to green offerings. Performance was 

reduced in the final quarter of the fiscal year from 4.90 percent in the third quarter as a result of 

the seasonality of Automobile purchases in the second and third quarters of the fiscal year. The 

purchase of alternative fuel vehicles (AFVs) is a major contributor to the green business volume 

and as a result when these sales are realized the performance of the measure improves relative 

to the level business volume conducted. Overall business volume across GSA/FAS is consistent 

month to month in general so when overall business volume continued to material in the fourth 

quarter at the same rate as during the year and commensurate green purchase are not realized 

as in the second and third the overall result of the metric is reduced. This seasonal effect of AFV 

purchases was also seen in FY 2012 in the fourth quarter of the fiscal year.

During the final review of FY 2013 results for this APG a review of all quarterly results was 

conducted and it was discovered that in FY 2012 data collected on AFV purchases was 

overstated by a double count of purchases throughout the year. Once this issue was corrected 

the results for the measure were adjusted for FY 2012, though there was no impact on FY 2013 

performance or targets this validation of results was an important internal control process to 

ensure that results of this measure were accurate over the duration of the APG.
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Contextual Indicator - Total Purchasing Tracked through the GSA Federal Acquisition 

Service Systems. The Total Purchasing indicator measures the total dollars of business 

volume (purchases) in the reported fiscal year tracked through the GSA Federal Acquisition 

Service systems.

Fiscal Year Quarter Period Ending Green Value 

(approx amts)[1] Actual Value

2012-Q1 December, 2011 158,196,445 14,124,682,564

2012-Q2 March, 2012 1,074,340,351 27,689,184,310

2012-Q3 June, 2012 2,581,820,928 42,255,661,670

2012-Q4 September, 2012 3,057,026,116 56,195,333,012

2013-Q1 December, 2012 337,453,241 13,717,611,420

2013-Q2 March, 2013 1,036,986,023 27,217,480,920

2013-Q3 June, 2013 1,952,311,039 39,843,082,421

2013-Q4 September, 2013 2,431,095,219 52,394,293,503

[1] amounts calculated applying the green purchasing pct (2 sig digits) to total business volume

Contextual Indicator - Total Offerings Tracked through the GSA Federal Acquisition 

Service Systems. The Total Offerings indicator measures the total number of offerings tracked 

through the GSA Federal Acquisition Service systems.

Fiscal Year Quarter Period Ending Target Value 

approx [1] Actual Value

2012-Q1 December, 2011 284,339 20,754,672

2012-Q2 March, 2012 301,154 21,059,694

2012-Q3 June, 2012 283,328 21,464,237

2012-Q4 September, 2012 262,994 22,671,857

2013-Q1 December, 2012 278,491 23,802,622

2013-Q2 March, 2013 292,073 24,543,943

2013-Q3 June, 2013 273,145 23,751,768

2013-Q4 September, 2013 327,417 26,404,558

[1] amounts calculated applying the green offering pct (2 sig digits) to offerings
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Appendix B: FY 2014-2015 Priority Goal Plans 

FY14-15 Priority Goal 1 - Generate savings through Federal Strategic Sourcing Initiative

By September 30, 2015, GSA will save $255M ($111 million during FY 2014 and 

$144 million during FY 2015) through the use of Federal Strategic Sourcing 

Initiative (FSSI). 

Federal agencies purchase over $500B of goods and services annually. A key vehicle used by 

GSA, and other top purchasing federal government agencies, to promote cost savings, 

improved management visibility and adoption of best practices, has been the Federal Strategic 

Sourcing Initiative. Established in 2005, FSSI is designed to improve government management 

of commonly purchased goods and services. FSSI provides customers with significant savings, 

decreases administrative redundancy, and improves business intelligence while meeting or 

exceeding small business and sustainability goals.

Strategies: GSA is focused on informing customers of the benefits of using FSSI solutions, 

including savings opportunities, the ability to help meet socioeconomic goals and improved 

operating efficiencies. GSA is actively engaged in coordinated efforts to educate agencies 

regarding the benefits of FSSI solutions. In addition to increasing adoption, GSA will focus on 

generating savings by:

1. Leveraging information available through existing data sources to negotiate better 

prices;

2. Critically analyzing spending patterns to enhance business intelligence while applying 

this intelligence to FSSI initiatives within GSA;

3. Reengineering business processes to identify operational efficiencies that will reduce 

costs to agencies;

4. Sharing information, such as prices paid under FSSI and other federal contracts to 

increase savings opportunities; and

5. Increasing adoption of industry and government agency best practices.

Barriers and challenges related to usage of these solutions include:

Agencies may have duplicative solutions in place or attempt to create duplicative 

solutions;

Agencies may have trouble identifying usage or key users in order to spread information 

relating to the solutions; and

Some agencies may have unique requirements or better pricing and this is considered a 

legitimate reason for not using Federal Strategic Sourcing Initiative solutions.

Progress Update: See performance.gov for an update of GSA’s progress against this goal.

Next Steps: GSA will take the following actions in support of this Agency Priority Goal over the 

next two years:

Deliver new and update existing Federal Strategic Sourcing Initiative offerings;

Research and assess additional products or service areas that are well suited for 

Federal Strategic Sourcing Initiative solutions;

Continue to negotiate the lowest possible lease rates for its customer agencies;

Reduce overhead and other costs from operations for customers through providing a 

more efficient procurement for offerings provided through Federal Strategy Sourcing.

A key external factor is, in many cases, federal agencies are not required to use GSA for their 

procurement. GSA will focus on providing the best, most cost-effective procurement solutions to 
U.S. General Services Administration 

Annual Performance Plan and Report

APR-93

attract business, and will support the Administration’s priority to reduce contract duplication 

across the federal government.

Contributing Programs: The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

General Supplies and Services

Integrated Technology Services

Travel, Motor Vehicle and Card

Services
U.S. General Services Administration 

Annual Performance Plan and Report

APR-94

FY 2014-2015 Priority Goal 2 - Reduce the federal footprint

By September 30, 2015, GSA will reduce the amount of aggregate leased space by 

5 percent for replacement leases. GSA will also work with agencies to complete a 

total of 15 Client Portfolio Plans (three new plans each year) to identify 

opportunities for agencies to optimize their real estate portfolios. 

GSA is leading efforts to improve asset utilization, reduce agency space requirements, 

effectively manage real property, and pursue innovative proposals to leverage resources. We 

will work with agencies to increase office space utilization, which will minimize operations, 

maintenance and investment costs. GSA’s efforts will assist the Federal Government in 

reducing its real estate footprint and generating savings for the American public.

Strategies: In order to accomplish our goal to reduce the federal footprint, GSA is aggressively 

working to reduce the amount of leased space in our inventory, since leased space is more 

costly than government-owned space. GSA will propose space reduction and consolidation 

options as tenant agencies require new or replacement leases. We will work with agencies to 

reduce their requirements and implement new and innovative workplace strategies that 

maximize space utilization. GSA will also continue developing new client portfolio plans and 

update existing plans to identify and implement opportunities for customers to reduce space in 

leased and government owned buildings. Through these plans, GSA assesses agencies’ 

current real estate portfolio and develops action plans to increase asset utilization, as funding is 

available. GSA also works with agencies without a client portfolio plan to reduce their space. We 

develop and utilize local portfolio plans and leverage market opportunities to help our customers 

consolidate and reduce real estate costs. 

Through these strategies and initiatives, GSA is helping the Government reduce the federal 

footprint and save customer agencies money. Customers are looking for ways to consolidate 

space and minimize costs in this current budget climate and GSA is helping them achieve this 

goal by offering innovative solutions and technologies to reduce and optimize space.

Progress Update: See performance.gov for an update of GSA’s progress against this goal.

Planned Actions: GSA will take the following actions in support of this Agency Priority Goal 

over the next two years:

Assist customer agencies to refine their leasing requirements to reduce space and 

consolidate where economically and financially appropriate;

Select three new agencies annually and develop a client portfolio plan for each agency 

and begin implementing action plans to capitalize on market and asset opportunities; and

Identify consolidation opportunities through client portfolio plans and local portfolio 

strategies that will increase utilization in leased and government-owned space.

Contributing Programs. The following programs, defined in the Federal Program Inventory, 

contribute to this objective.

Building Operations

Construction and Acquisition of 

Facilities

Government-wide Policy

Operating Expense

Real Property Disposal

Real Property Relocation

Rental of Space
U.S. GENERAL SERVICES

ADMINISTRATION

STRATEGIC PLAN

Fiscal Year 2014 – 2018
U.S. General Services Administration

STRATEGIC PLAN

Fiscal Year (FY) 2014 – 2018

CONTENTS

AGENCY INFORMATION ..................................................................................................................................1

OVERVIEW.................................................................................................................................................................1

MISSION, VISION AND GOALS ...................................................................................................................................1

GSA PRIORITIES.......................................................................................................................................................2

STRATEGIC FRAMEWORK..........................................................................................................................................3

ORGANIZATIONAL STRUCTURE.................................................................................................................................4

STAKEHOLDER ENGAGEMENT ..................................................................................................................................5

CROSS AGENCY PRIORITY GOALS..............................................................................................................5

AGENCY PRIORITY GOALS.............................................................................................................................5

PRIORITY GOAL 1: GENERATE SAVINGS THROUGH FEDERAL STRATEGIC SOURCING INITIATIVE ..........................5

PRIORITY GOAL 2: REDUCE THE FEDERAL FOOTPRINT............................................................................................6

STRATEGIC GOAL 1: PROVIDE SAVINGS TO FEDERAL DEPARTMENTS AND AGENCIES ..............8

STRATEGIC OBJECTIVE 1.1: DELIVER CONTRACTING SOLUTIONS TO GENERATE CUSTOMER SAVINGS.................8

STRATEGIC OBJECTIVE 1.2: IMPROVE THE FEDERAL UTILIZATION OF SPACE..........................................................8

STRATEGIC OBJECTIVE 1.3: REDUCE RESOURCE USE AND ENVIRONMENTAL IMPACT ...........................................9

STRATEGIC GOAL 2: IMPROVE THE EFFICIENCY OF OPERATIONS AND SERVICE DELIVERY.... 10

STRATEGIC OBJECTIVE 2.1: INCREASE THE EFFICIENCY OF GSA OPERATIONS...................................................10

STRATEGIC OBJECTIVE 2.2: ENHANCE ASSET MANAGEMENT ...............................................................................11

STRATEGIC GOAL 3: DELIVER EXCELLENT CUSTOMER SERVICE .................................................... 12

STRATEGIC OBJECTIVE 3.1: ENHANCE RELATIONSHIPS WITH CUSTOMERS, SUPPLIERS AND STAKEHOLDERS....12

STRATEGIC OBJECTIVE 3.2: SUPPORT SMALL AND DISADVANTAGED BUSINESS...................................................14

MANAGEMENT OBJECTIVES........................................................................................................................ 15

MANAGEMENT OBJECTIVE M1: DELIVER A MISSION READY WORKFORCE ............................................................15

MANAGEMENT OBJECTIVE M2: STREAMLINE INFORMATION TECHNOLOGY AND IMPROVE DATA QUALITY AND 

REPORTING..............................................................................................................................................................16

MANAGEMENT CHALLENGES...................................................................................................................... 17

EVALUATION AND RESEARCH .................................................................................................................... 17
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-1

Agency Information

Overview

The U.S. General Services Administration (GSA) provides the spaces, services, and goods 

required 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 to government organizations and the military. 

Our policies promote management best practices and efficient government operations.

GSA has an annual business volume of over $60 billion, manages over 205 thousand fleet 

vehicles, and manages a building portfolio, which includes 9,011 owned or leased assets, more 

than 378 million rentable square feet of workspace, and 471 historic properties. We have a 

continuing commitment to our federal customers and the American public to provide services in 

the most cost-effective manner possible, and we deliver on this promise by steadily improving 

organizational performance. At a time when budgets are shrinking across the federal 

government, we are providing the value that our partner agencies need so that they can focus 

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

Mission, Vision and Goals

GSA was established on July 1, 1949, as a result of the Hoover Commission’s recommendation 

that consolidating administrative functions across government into one organization would be 

more effective and economical for the government and would avoid “senseless duplication, 

excess cost, and confusion in handling supplies, and providing space.” Our mission, vision and 

goals were selected to continue in this tradition and focus our activities to make government 

more effective and economical by providing savings to federal departments and agencies, 

improving the efficiency of operations and service delivery, and delivering excellent customer 

service.

Mission

Deliver the best value in real estate, acquisition, and 

technology services to government and the American people

Vision

Providing government with the services and resources it needs 

to accomplish its work as effectively and efficiently as possible

Values

Integrity • Transparency • Teamwork

The scope of the work we do at GSA is vast and varied, but the mission is simple and to the 

point. We serve the government and the American people. Through implementing our mission, 

we aspire to achieve three strategic goals: 

Savings – Provide savings to federal departments and agencies. We will use our 

purchasing power and expertise to deliver cost-effective real estate, acquisition and 

technology solutions to federal departments and agencies.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-2

Efficiency – Improve the efficiency of operations and service delivery. We will 

streamline our operations to offer high quality real estate, acquisition, and technology 

services at a good value to federal departments and agencies. 

Service – Deliver excellent customer service. We will deliver excellent customer 

service to federal agencies and departments by making it easier to reliably meet their 

real estate, acquisition and technology needs. 

GSA Priorities

We are committed to six priorities that guide us in meeting our mission.

1. Delivering Better Value and Savings. Using the purchasing power of the federal 

government, we will reduce costs to our customer agencies, enabling them to focus on their 

core missions. We will further improve this area by finding more ways to solve our 

customers’ problems in the coming year. We will look for new ways to help these agencies 

make their purchases smarter and more efficient. At the same time, we will look for new and 

innovative ways to maximize the value of our real estate assets.

2. Serving Our Partners. Every day the work that we do helps our customer agencies focus 

on their missions. Partnership on all levels is critical to the success of GSA. Strong 

partnerships with partner agencies and vendors alike are critical and lead to good business 

decisions that create value and savings for our customers and the American public. It is our 

commitment to ensure that doing business with GSA is an easy and reliable experience. We 

are continuously improving our processes and systems to make them as simple and 

streamlined as possible.

3. Expanding Opportunities for Small Businesses. Small businesses are the engines that 

power the American economy. Contracting with these entrepreneurs is a win-win for both 

the federal 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 and through the contracts we award for other agencies.

4. Making a More Sustainable Government. Going green saves green. Environmentally 

friendly practices are good for the environment and for business. GSA is committed to both. 

As we work toward implementing sustainable practices and making our buildings and our 

fleet more environmentally-friendly, we will continue to work with vendors to make 

sustainable products and services readily available and affordable.

5. Leading with Innovation. GSA is a leader of innovation in public service. Among many 

firsts, we were the first government agency to move to cloud computing, setting an example 

for others to follow. In the coming years, we will continue to develop innovative, cost saving 

solutions that will be shared across the government.

6. Building a Stronger GSA. We must make sure our own employees at GSA are getting the 

same high quality support that we give our partner agencies. Offering the very best training 

and resources to our employees will be the cornerstone of this effort. By doing so, the 

agency will better serve its employees, while continuing to ensure that our customers 

receive great service. We will guarantee that when we do something, we will do it once and 

do it well.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-3

Strategic Framework

The GSA Mission is to deliver best value in real estate, acquisition, and 

technology services to government and the American people

STRATEGIC GOALS

1. SAVINGS

Provide savings to federal 

departments and agencies

2. EFFICIENCY

Improve the efficiency of

operations and service delivery

3. SERVICE

Deliver excellent

customer service

PRIORITIES

Delivering 

Better Value 

and Savings

Making a More 

Sustainable 

Government

Building 

a

Stronger GSA

Leading 

with 

Innovation

Serving 

Our 

Partners

Expanding 

Opportunities for 

Small Businesses

STRATEGIC OBJECTIVES AND KEY PERFORMANCE GOALS

1.1 Deliver contracting solutions to 

generate customer savings

Generate savings through the Federal 

Strategic Sourcing Initiative *

Reduce the Global Supply blended 

markup

Procure lease space at below 

industry market rates

Realize savings through Integrated 

Technology Service solutions

1.2 Improve the federal utilization of 

space

Reduce the federal footprint *

Reduce vacant space in the

government-owned and leased 

inventory 

1.3 Reduce resource use and 

environmental impact 

Green the federal supply chain

Reduce total water consumption 

Reduce total energy purchased

Reduce use of petroleum-based fuel

Purchase alternative fuel vehicles 

Provide useful energy efficiency 

information and tools to federal 

agencies

2.1 Increase the efficiency of GSA

operations

Improve the efficiency of GSA 

operations 

Reduce indirect costs 

Achieve full cost recovery in the 

GSA leasing program

Complete new construction 

projects on schedule 

Deploy civilian acquisition 

workforce training courses 

efficiently

Timely award of public sale 

properties and non-competitive 

sales and donations

2.2 Enhance asset management 

Achieve an appropriate return on 

equity for government-owned 

properties

Provide building cleaning and 

maintenance at competitive costs

3.1 Enhance relationships with 

our customers, suppliers and 

stakeholders

Improve customer satisfaction 

with government-owned and 

leased space

Achieve customer loyalty and 

supplier satisfaction for 

acquisitions services

Implement effective policy 

initiatives 

Drive greater transparency and 

innovation in government 

Increase citizen engagement 

with federal agencies

3.2 Support small and 

disadvantaged business 

Meet small business prime 

contracting and subcontracting 

goals

Meet small business targets on 

Multiple Award Schedules 

MANAGEMENT OBJECTIVES AND PERFORMANCE GOALS

M.1 Deliver a mission ready workforce

Reduce the time to hire

Increase employee engagement

M.2 Streamline information technology and improve 

data quality and reporting

Successfully implement enterprise information 

technology services

* Agency Priority Goal
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-4

Organizational Structure

GSA provides the spaces, services, and goods required 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 to 

government organizations and the military. Our policies promote management best practices 

and efficient government operations. We serve more than 60 federal agencies and departments 

through our 11 regional offices and are organized into the 16 service and staff offices 

highlighted below. Our organizations support the 22 programs defined in the FY 2013 GSA 

Program Inventory published on www.performance.gov.

Federal Acquisition Service (FAS) - FAS provides federal agencies over 11 million 

different products and services, and annually delivers over $54 billion in information 

technology solutions and telecommunications services, assisted acquisition services, travel 

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

card services. FAS manages over 205 thousand leased vehicles, more than 3.5 million 

charge cards, and provides personal property disposal services facilitating the reuse of $1 

billion in excess/surplus property annually. FAS leverages the buying power of the federal 

government by negotiating prices on many products and services required by federal 

agencies for daily operations. By arranging a network of service providers, FAS is able to 

meet the operating and mission requirements of a vast array of federal agencies and state, 

local, and tribal governments. 

Public Buildings Service (PBS) - PBS activities fall into two broad areas: workspace 

acquisition and property management. PBS acquires space on behalf of the federal 

government through new construction and leasing, and acts as a caretaker for federal 

properties across the country. As the largest public real estate organization in the United 

States, PBS owns or leases 9,011 assets and maintains an inventory of more than 378 

million square feet of rentable workspace for 1.1 million federal employees. Within this 

inventory, PBS has 647 owned and leased historic properties. PBS provides high quality 

facility and workspace solutions to more than 60 federal agencies, disposes of excess or 

unneeded federal properties, and promotes the adoption of innovative workplace solutions 

and technologies. Through lease and purchase transactions, PBS delivers the workspace 

necessary to meet the respective missions of its federal customers. PBS is working with its 

federal customers to design the workplace of the 21st Century, seeking to reduce overall 

workspace needs and associated costs. These services are also coordinated to obtain the 

best available pricing.

Office of Citizen Services and Innovative Technology (OCSIT) - OCSIT makes federal 

government information and services more readily available to the public, and makes it 

easier for the public to conduct transactions with the federal government. OCSIT also

identifies, tests and deploys innovative technologies for the government to provide shared, 

transparent and cost effective means to disseminate information and conduct business. 

OCSIT provides access to a wide range of government services as well as consumer 

protection information through the official web portals of the federal government, USA.gov 

and GobiernoUSA.gov. OCSIT works closely with other government agencies – federal, 

state, local, and international – to collect and consolidate information and make it available 

to the public, sharing experiences that lead to better solutions.
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FY 2014 - 2018 Strategic Plan

SP-5

Office of Government-wide Policy (OGP) - OGP uses policies, information and ideas to 

drive efficiency and savings in the agencies across key administrative areas: including travel 

and transportation, acquisition, information technology, and green buildings. OGP helps 

drive agency behavior in these administrative areas through the development of 

government-wide policy-making, performance standards, analysis and benchmarking of 

data, and regular reporting to the agencies and key stakeholders.

Staff Offices - The GSA staff offices support the enterprise. They ensure GSA is prepared 

to meet the needs of customers, on a day-to-day basis and in crisis situations. GSA has two 

independent staff offices (Office of the Inspector General, Civilian Board of Contract 

Appeals), and ten GSA staff offices (Office of Administrative Services, Office of 

Congressional and Intergovernmental Affairs, Office of the Chief Financial Officer, Office of 

the Chief Information Officer, Office of Human Resource Management, Office of General 

Counsel, Office of Mission Assurance, Office of Communications and Marketing, Office of 

Civil Rights and the Office of Small Business Utilization).

Stakeholder Engagement

GSA engaged key stakeholders in the development of this plan. These stakeholders include 

customers, suppliers, executive councils, and the Office of Management and Budget. Both 

federal and non-federal stakeholders were consulted when developing and formulating goals. 

Through activities like the Top to Bottom Review, the Great Ideas Hunt, and numerous town hall 

meetings, people at every level of GSA provided input about how we can be more efficient and 

effective. We conducted strategic visioning sessions, which included external stakeholders to 

define the future state of the agency, and published our draft Strategic Plan on our website and 

requested comments from stakeholders: including Congressional stakeholders and the 

American public. All comments received were considered when finalizing this plan and updating 

our internal processes for planning and performance management.

Cross Agency Priority Goals

Per the GPRA Modernization Act requirements to address Cross-Agency Priority (CAP) Goals 

in the agency strategic plan, the annual performance plan, and the annual performance report,

please refer to www.performance.gov for the agency’s contributions to those goals and 

progress, where applicable. GSA currently contributes to the following CAP goals: 

Cybersecurity, Sustainability, Real Property, Improper Payments, Data Center Consolidation, 

Closing Skill Gaps, Open Data and Strategic Sourcing.

Agency Priority Goals

Priority Goal 1: Generate savings through Federal Strategic Sourcing Initiative

By September 30, 2015, GSA will save $255 million ($111 million during FY 2014 and $144 

million during FY 2015) through the use of the Federal Strategic Sourcing Initiative (FSSI). 

Federal agencies purchase over $500 billion of goods and services annually. A key vehicle used 

by GSA, and other top purchasing federal government agencies, to promote cost savings, 

improve management visibility and adoption of best practices, has been the Federal Strategic 

Sourcing Initiative. Established in FY 2005, FSSI is designed to improve government 

management of commonly purchased goods and services. FSSI provides customers with 

significant savings, decreases administrative redundancy, and improves business intelligence 

while meeting or exceeding small business and sustainability goals.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-6

Strategies:

GSA is focused on informing customers of the benefits of using FSSI solutions, including

savings opportunities, the ability to help meet socioeconomic goals and improved operating

efficiencies. GSA is actively engaged in coordinated efforts to educate agencies regarding the 

benefits of FSSI solutions. In addition to increasing adoption, GSA will focus on generating 

savings by:

1. Leveraging information available through data sources to negotiate better prices;

2. Critically analyzing spending patterns to enhance business intelligence while applying 

this intelligence to FSSI initiatives within GSA;

3. Reengineering business processes to identify operational efficiencies that will reduce 

costs to agencies;

4. Sharing information, such as prices paid under FSSI and other federal contracts to 

increase savings opportunities; and

5. Increasing adoption of industry and government agency best practices.

Barriers and challenges related to usage of these solutions include:

Agencies may have duplicative solutions in place or attempt to create duplicative 

solutions;

Agencies may have trouble identifying usage or key users in order to spread information 

relating to the solutions; and

Some agencies may not use the Federal Strategic Sourcing Initiative solutions due to 

unique requirements or ability to obtain better pricing.

Priority Goal 2: Reduce the federal footprint

By September 30, 2015, GSA will reduce the aggregate amount of leased space by 5 percent

for replacement leases. GSA will also work with agencies to complete a total of 15 client 

portfolio plans (three new plans each year) to identify opportunities for agencies to optimize their 

real estate portfolios. GSA is leading efforts to improve asset utilization, reduce agency space 

requirements, effectively manage real property, and pursue innovative proposals to leverage 

resources. We will work with agencies to increase office space utilization, which will minimize 

operations, maintenance and investment costs. GSA’s efforts will assist the Federal 

Government in reducing its real estate footprint and generating savings for the American public.

Strategies: 

In order to accomplish our goal to reduce the federal footprint, GSA is aggressively working to 

reduce the amount of leased space in our inventory, since leased space is more costly than 

government-owned space. GSA will propose space reduction and consolidation options as 

tenant agencies require new or replacement leases. We will work with agencies to reduce 

their requirements and implement new and innovative workplace strategies that maximize 

space utilization. GSA will also continue developing new client portfolio plans and update 

existing plans to identify and implement opportunities for customers to reduce space in leased 

and government owned buildings. Through these plans, GSA assesses agencies’ current real 

estate portfolio and develops action plans to increase asset utilization, as funding is available. 

GSA also works with agencies without a client portfolio plan to reduce their space. We 

develop and utilize local portfolio plans and leverage market opportunities to help our 

customers consolidate and reduce real estate costs. 
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-7

Through these strategies and initiatives, GSA is helping the Government reduce the federal 

footprint and save customer agencies money. Customers are looking for ways to consolidate 

space and minimize costs in this current budget climate and GSA is helping them achieve this 

goal by offering innovative solutions and technologies to reduce and optimize space.

Updates to these Agency Priority Goals are posted on performance.gov.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-8

Strategic Goal 1: Provide savings to federal departments and agencies 

GSA will strengthen federal capabilities to leverage the purchasing power of the government to 

offer the most cost-effective solutions. Two areas of focus will be improving federal utilization of 

space and increasing savings through strategic sourcing. GSA will continue to promote cost 

savings through the sustainable usage of space, travel, fleet, technology and resources. GSA 

will also continue to test new technologies, workplaces, and other solutions, and share the best 

practices with other agencies to generate savings.

Strategic Objective 1.1: Deliver contracting solutions to generate customer savings

GSA will effectively leverage existing, and develop new, federal strategic sourcing initiatives to 

provide competitively priced solutions to drive savings in technology, real property and other 

acquisitions throughout the federal government. Through these solutions, GSA will be able to 

leverage government-wide business volume for better pricing, and standardize contracting 

terms and conditions in order to reduce the cost of purchasing across government. 

Strategies:

1. Continue to assess government purchasing and supply markets to develop federal 

strategic sourcing initiatives that provide our customers with services and equipment, at 

an excellent value, from suitable suppliers using standard solution pricing menus. 

2. Use standard solutions and pricing with qualified suppliers to make it easier for agencies 

to meet their acquisition needs with minimal administrative demands, and, in turn, allow 

agencies to focus their time and resources towards their core mission-critical operations.

3. Promote the use of strategic sourcing solutions by our customers and work with federal 

partners and industry to develop solutions for a broader array of products and services.

4. Reduce the operating costs for providing supplies to customers, which in turn will lead to 

customer savings.

5. Continue to use solutions such as Smartbuy, Networx Services and Reverse Auctions to 

provide customers with significant savings for information technology and 

telecommunications services and equipment.

6. Continue to develop and refine real estate market analysis tools and leasing processes 

to offer our customers leased workspace, when needed, at an excellent value.

Key Performance Goals: 

Generate savings through Federal Strategic Sourcing Initiatives

Reduce the Global Supply blended markup

Procure lease space at below industry market rates

Realize savings through Integrated Technology Service solutions

Contributing Programs: 

Assisted Acquisition

Electronic Government

General Supplies and Services

Integrated Award Environment

Integrated Technology Services

Rental of Space

Travel, Motor Vehicle and Card 

Services

Strategic Objective 1.2: Improve the federal utilization of space

GSA is leading efforts to improve asset utilization, reduce agency space requirements, 

effectively manage real property, and pursue innovative proposals to leverage resources. We 
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-9

are a government-wide leader and expert in real estate solutions. We will assist and educate 

federal departments and agencies to develop plans that will assist agencies with consolidating 

their space to reduce their footprint.

GSA is encouraging agencies to reduce space to minimize costs. We use a variety of tools, 

strategies, and portfolio planning options to determine the optimal housing solutions for 

agencies. We are also targeting our large, more costly new construction, major repairs and 

alterations, and leasing prospectus projects. By working with customer agencies, GSA will 

identify opportunities to optimize federal real estate portfolios by reducing space, improving 

utilization, disposing of underutilized assets, and leveraging market opportunities to reduce the 

footprint and investment and operating costs.

GSA supports meeting the Office of Management and Budget’s “Freeze the Footprint” policy –

aimed at maintaining government-wide square footage for offices and warehouses – by 

collecting government-wide data and conducting analysis to assess the performance of each 

agency towards meeting the national goal.

Strategies:

1. Use of the client portfolio planning process to develop and implement space saving 

opportunities with demonstrated value for both the client and GSA. These plans create 

value by proposing solutions which align Administration, client agency and GSA goals, 

and help optimize an agency’s existing portfolio while more effectively anticipating, 

capturing, and advising on future portfolio needs.

2. Where it is advantageous to the federal government, work to house tenants in federally 

owned space, rather than leasing from the private sector.

3. Minimize the amount of vacant space in the inventory and increase the utilization of 

existing space.

Key Performance Goals: 

Reduce the federal footprint

Reduce vacant space in the government-owned and leased inventory 

Contributing Programs: 

Assisted Acquisition

Building Operations

Construction and Acquisition of 

Facilities

Government-wide Policy

Integrated Technology Services

Operating Expense

Real Property Disposal

Real Property Relocation 

Rental of Space

Repairs and Alterations

Strategic Objective 1.3: Reduce resource use and environmental impact

GSA will reduce resource usage by installing and implementing energy and water efficiency 

improvements in its portfolio; procuring more fuel efficient vehicles; reducing waste generation 

and diverting waste from landfills; offering more sustainable products and services on its 

schedules; reducing business travel and making remote meeting technologies more available 

and accessible; and increasing telework and designing workspaces that increase space 

utilization. 

GSA also serves as a test-bed for innovative technologies and management practices that 

improve environmental performance while reducing costs. This will be accomplished by testing 
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-10

and, where proven effective, deploying Green Proving Ground building technologies and by 

making innovative products and services available and affordable to customer agencies.

Strategies:

1. Employ new technologies and building management practices that are both costeffective and environmentally responsible. 

2. Expand the use of alternative fuel vehicles government-wide and ensure that low-cost, 

high-efficiency vehicle options are available to customer agencies.

3. Building on its capability to deliver comprehensive products and services across 

Government at the best value possible, GSA will continue to expand its offerings of 

sustainable products. Assist federal agencies in meeting environmental sustainability 

purchasing requirements by identifying and increasing the availability of green products 

and services. 

4. Enhance the usefulness of energy efficiency research, strategies, practices, and tools 

provided to federal agencies by improving existing and deploying new resources that will 

enable better measurement of the use and impact of the resources provided; and 

obtaining user feedback, and disseminating research, strategies, practices and tools. 

Key Performance Goals: 

Green the federal supply chain

Reduce total water consumption 

Reduce total energy purchased 

Reduce use of petroleum-based fuel

Purchase alternative fuel vehicles 

Provide useful energy efficiency information and tools to federal agencies

Contributing Programs: 

Assisted Acquisition

Building Operations

Construction and Acquisition of 

Facilities

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Goal 2: Improve the efficiency of operations and service delivery

GSA will build greater efficiency in its operations and service delivery. Operations will be 

streamlined and improved to ensure that we provide our services efficiently to our customers. 

GSA will continue to invest in improving our real property assets to meet the short and long term 

needs of our customers. GSA will improve internal operations by enhancing real property asset 

quality, and streamlining operations, processes and technology delivery. GSA will assist the 

federal government in improving the efficiency of fleet operations government-wide by pursuing 

the consolidation of customer managed fleets into GSA’s fleet operations. 

Strategic Objective 2.1: Increase the efficiency of GSA operations

GSA will build greater efficiency in meeting customer needs in the areas of acquisition services 

and real property leasing, construction, and disposal. We will reduce administrative costs, 

improve oversight and strengthen internal controls to drive efficiency in our operations. Zerobased budgeting practices will be employed to allocate and reduce travel, information 

management infrastructure, management support contracts based on agency priorities. 
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-11

Strategies:

1. Streamline and standardize processes, maintain cost-beneficial controls and improve 

financial and performance data analytics and reporting;

2. Mitigate financial risks by developing, implementing and overseeing rigorous and 

consistent internal controls on budgetary and financial processes and transactions;

3. Reduce indirect costs through realignment;

4. Achieve greater efficiency in delivering products and services by implementing category 

management best practices;

5. Increase percent of leased revenue available after administering the leasing program by 

improving billing practices for rent and building services;

6. Design, construct and manage buildings that efficiently meet our customers’ 

requirements; and

7. Change the use of space and reduce the average space allocation by implementing 

innovative workplace solutions and adoption of a “smart occupancy” approach to GSA 

occupied space.

Key Performance Goals: 

Improve the efficiency of GSA operations 

Reduce indirect costs 

Achieve full cost recovery in the GSA leasing program

Complete new construction projects on schedule 

Contributing Programs: 

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Operating Expense

Real Property Disposal

Real Property Relocation 

Rental of Space

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective 2.2: Enhance asset management

GSA will continue to invest in improving our real property assets and operating systems to meet 

the needs of its federal customers. We will use asset evaluation tools to determine the financial 

performance in the real property inventory. By applying leading and innovative building 

operations management principles, we will provide services in an efficient and effective manner 

for the American public. 

GSA will continue to support customers in meeting their fleet needs though the efficient 

management of our fleet operations. Since we are responsible for approximately one half of the 

federal fleet, we leverage economies of scale in delivering fleet solutions to customers that 

include working with customers to find the best solutions to meet their mission critical needs at 

the lowest cost possible. We are also able to manage changes in demand from customers 

through use of its vehicles to alleviate the need for additional assets by the federal government 

to meet short term needs.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-12

Strategies:

1. Maintain a viable, self-sustaining inventory of real properties providing federal agencies 

with optimum facilities at the best possible cost.

2. Ensure customer agencies are paying competitive, market rates for building support 

services.

3. Actively manage the GSA Fleet vehicles across the federal customer base and 

maximize asset utilization to the greatest extent possible.

4. Leverage the information systems and infrastructure across the federal government to 

reduce per unit cost of vehicle operations.

5. Work with our customer agencies to further educate them on how to efficiently identify 

and dispose of unneeded real property assets.

Key Performance Goals: 

Achieve an appropriate return on equity for government-owned properties

Provide building cleaning and maintenance at competitive costs 

Contributing Programs: 

Building Operations

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Goal 3: Deliver excellent customer service

GSA will deliver excellent customer service to federal agencies and departments by making it 

easier for them to meet their real estate, acquisition and technology needs. We will strengthen 

communications, processes, and offerings, and generate new ideas through collaboration with 

customers and industry. This goal will be achieved through a commitment to service, teamwork, 

problem-solving and continual improvement. 

Strategic Objective 3.1: Enhance relationships with customers, suppliers and 

stakeholders 

GSA will improve customer knowledge through increased use of business intelligence, 

furthering strategic partnerships and improved financial stewardship. We will make it easier for 

federal agencies to acquire what they need to achieve their mission. We will also assess our 

performance in acquisition, technology, and real property services through annual surveys to 

attain customer perceptions concerning the quality, reliability, value, timeliness, and 

responsiveness of GSA in meeting federal agency needs. Customer data will be used to drive 

continuous improvement.

We will continue to improve relationships with current and potential suppliers, and develop tools 

and processes to make it easier for suppliers to efficiently meet the needs of government 

customers. We will analyze market and vendor data to negotiate better rates, discounts, 

improved services and other benefits for federal agencies. We will increase vendor outreach 

and communications to strengthen trust with suppliers.

GSA will enhance federal government interaction with the American public by providing 

innovative tools and solutions that better enable the American public to access federal 

information; increasing federal use of existing public engagement tools, technology, and 
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-13

expertise; and improving access and increasing the American public’s use of communication 

mediums aimed at public engagement.

Strategies:

1. Increase customer loyalty through strategic partnerships with customers and an agencyspecific team approach to provide federal customers with access to customized support 

at all levels, from the agency executive through procurement decision makers.

2. Offer a multi-layered team of people and programs to capture the voice of the customer, 

identify and improve gaps, deliver customized analytics and recommendations and 

further improve the value GSA offers for customer agencies.

3. Establish focused account strategies to ensure customers receive coordinated and 

consistent information, dedicated client representation understanding their strategies 

and needs, and an improved appreciation for how important their business and 

satisfaction are to GSA.

4. Ensure consistency with our building services delivery by improving communication with 

national managers and staff, and providing training courses. 

5. Continue to implement our smart building program so that improvements to our buildings 

will include consideration for building systems, occupants, the environment, energy 

sources, operating policy, capital and operating expenses, while meeting customer 

workforce expectations.

6. Continue to administer the Supplier Relationships Survey and act on survey results to 

improve our processes and make it easier for suppliers to do business with us, while 

maintaining rigorous business controls and improving purchasing transparency for 

federal customers.

7. Leverage data to improve programs.

8. Create tools and resources (reverse auctions, IT Solutions Navigator, etc) and offer 

regular training sessions that make it easier for agencies to identify and purchase GSAcontracted information technology solutions which fully meet their needs.

9. Meet with senior leadership of government agencies to promote GSA solutions and new 

awards, and help agencies identify ways to save money.

10. Improve the collection, analysis, and visualization of data to inform decision-making and 

lead to more effective policy development.

11. Demonstrate the viability and scalability of new government-wide shared solutions and 

expand the use of solutions to deliver value, cost avoidance and excellent customer 

experiences to federal agencies.

Key Performance Goals: 

Improve customer satisfaction with government-owned and leased space

Achieve customer loyalty and supplier satisfaction for acquisition services

Implement effective policy initiatives

Drive greater transparency and innovation in government 

Increase citizen engagement 

Contributing Programs: 

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-14

Rental of Space

Repairs and Alterations

Travel, Motor Vehicle and Card 

Services

Strategic Objective 3.2: Support small and disadvantaged business

GSA will collaborate with industry on federal acquisition requirements and best practices to 

promote opportunities for small, disadvantaged, women-owned, historically underutilized 

business zones, and service-disabled veteran–owned small businesses. GSA will continue to 

educate the acquisition workforce on the importance of meeting socio-economic goals and 

assure small business considerations are made throughout the acquisition life-cycle in 

accordance with the Federal Acquisition Regulation in order to maximize small business 

opportunity in procurements.

Strategies: 

1. Increase participation in acquisition planning, internal procurement compliance reviews, 

and prime contractor subcontractor compliance reviews. 

2. Advise on revision of small business policies. 

3. Enhance analytic, performance monitoring and reporting capabilities.

4. Streamline outreach program efficiency and effectiveness.

Key Performance Goals: 

Meet small business prime contracting goals

Meet small business subcontracting goals

Meet small business targets on Multiple Award Schedule 

Contributing Programs: 

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Electronic Government

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services

Operating Expense

Rental of Space

Transportation Audits

Travel, Motor Vehicle and Card 

Services
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-15

Management Objectives

Management Objective M1: Deliver a mission ready workforce

GSA will deliver a high performing workforce by focusing on mission critical occupations such as 

acquisition, financial management, real property management and information technology. We 

will continue to invest in growing employee knowledge, skills, and abilities through improved 

performance management, training and developmental opportunities. We will become a leaner, 

more efficient, results oriented workforce by utilizing data analytics and improving human 

resource service delivery models to help leaders drive their business and deliver results.

Strategies: 

1. Enhance strategic alignment by

Delivering products and services that enable our business partners to focus on their 

core businesses;

Promoting effective hiring programs and workforce management practices;

Supporting the Agency’s effort to become more effective and efficient by eliminating 

redundancy and streamlining activities; 

Enhancing GSA human resource operations through the establishment of enterprisewide procedures and implementation of service level agreements and performance 

commitments;

Partnering with GSA Services to define how they can help plan for, identify and build 

the workforce competencies and abilities necessary for GSA to deliver on its 

business goals; and

Creating and administering a comprehensive performance management system that 

is aligned to the GSA mission, goals and priorities with organizational commitments.

2. Maintain quality leadership by

Improving employee engagement scores by creating a culture that motivates and 

engages employees; and 

Enhancing workforce development by focusing on the value of key tools such 

executive development plans and individual development plans.

3. Further develop human capital knowledge by

Conducting workforce planning by inventorying current capabilities of GSA workforce 

(focus on mission critical occupations), 

Identifying “best in class” metrics and targets, and 

Closing gaps between current and desired workforce capabilities.

Key Performance Goals:

Reduce the time to hire

Increase employee engagement 

Contributing Program: 

Acquisition Workforce Training

Assisted Acquisition

Building Operations

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Electronic Government

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Award Environment

Integrated Technology Services
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-16

Operating Expense

Rental of Space

Transportation Audits

Travel, Motor Vehicle and Card 

Services

Management Objective M2: Streamline information technology and improve data quality 

and reporting 

GSA will deliver quality information technology (IT) to efficiently support our internal operations 

and to provide high-valued products and services to our external business partners. To meet 

that challenge by FY 2018, we will change the way we deliver technology to our agency by 

integrating GSA IT services into a unified IT organization supported by a superior workforce. We 

will shift our culture from a decentralized business model to one with an enterprise-wide focus 

that makes transparent, data-driven decisions enabling innovative and collaborative solutions.

GSA will be a trusted advisor and partner, leveraging IT to deliver best value and innovative 

solutions for high quality outcomes. Our core values and guiding principles drive our decision 

making and our operational models. We will work as a team to deliver on commitments to our 

stakeholders as we support the GSA mission. In our execution of IT services, we incorporate 

our business knowledge and technology expertise to choose the best solution available. 

Consolidating enterprise IT services will leverage our resources, while efficiently providing 

capabilities needed across the GSA enterprise. We will focus on designing and delivering 

“simpler” IT which means improved access to IT, making IT easier to understand and use, and 

providing effective IT tools for GSA stakeholders.

GSA understands not only how fiscal constraints affect both our internal and external 

customers, but also how technology can be leveraged to best support mission needs. Through 

our governance processes, we will make structured, evidence-based investment decisions. 

While we continue to remain invested in technology innovation, we will balance innovation with 

the use of mature, standard processes and technologies that effectively meet user needs and 

create value. We are leveraging the technology surge of the social era to innovate the way we 

work together; we are standardizing on an agency-wide social networking platform and using 

other technologies that allow our employees to connect virtually from anywhere. Smart 

application of technologies saves money and allows for collaboration to generate good ideas.

Strategies: 

1. Improve the quality of our data and reporting by creating a list of categories to enable the 

search, discovery and reuse of enterprise data.

2. Develop data management services to improve the quality of GSA IT data, reporting and 

business analytics.

3. Improve business systems by consolidating applications and improving strategic 

customer engagement;

4. Modernize the GSA IT environment by providing key application access from mobile 

devices; and

5. Consolidate the GSA IT portfolio to better manage our investment in information 

technology.

Key Performance Goals: 

Successfully implement enterprise information technology services

Contributing Programs: 

Assisted Acquisition Building Operations
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-17

Citizen Services and Innovative 

Technologies

Construction and Acquisition of 

Facilities

Federal Acquisition Service –

Integrators

General Management and Support 

Services

General Supplies and Services

Government-wide Policy

Integrated Technology Services

Rental of Space

Travel, Motor Vehicle and Card 

Services

Management Challenges

GSA management challenges and strategies to address these challenges are available at: 

http://www.gsa.gov/portal/mediaId/183579/fileName/InspectorGeneralsAssessmentsigned.action.

Evaluation and Research

GSA developed this strategic plan using information from comprehensive top-to-bottom reviews 

of all program activities in FY 2012, the continuous top-to-bottom review process conducted 

throughout FY 2013, and analyzing data in the areas of real property, acquisition, aviation and 

motor vehicle fleet, travel, transportation, mail, regulatory activity and acquisition workforce.

Program evaluation is one of the mandatory elements of the Government Performance and 

Results Act of 1993 (GPRA) and the GPRA Modernization Act of 2010. These statutes call for 

agencies to: use program evaluations to assess the manner and extent to which their programs 

achieve intended objectives; include a summary of the findings of program evaluations 

completed in their Performance and Accountability Reports with a notation if no evaluations 

were completed; and present a schedule for future program evaluations in Strategic Plans. GSA 

will continue to perform regular, data-driven reviews to guide decisions and actions to improve 

performance outcomes and reduce costs.
U.S. General Services Administration 

FY 2014 - 2018 Strategic Plan

SP-18

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U.S. General Services Administration

MANAGEMENT CHALLENGES and GSA ACTIONS

Fiscal Year 2015 Budget Request

CONTENTS

Management Challenges and GSA Actions ............................................................................... 2
U.S. General Services Administration

Management Challenges and GSA Actions

MC-2

Management Challenges and GSA Actions 

This table summarizes the management challenges listed by the GSA Inspector General. In all 

cases, GSA’s budget addresses each management challenge by providing the necessary 

funding for the office charged with addressing the challenge.

Acquisition Program

Management Challenge GSA Actions

The GSA Schedules Program, also referred to as 

Multiple Award Schedule and Federal Supply Schedule, 

remains one of GSA’s largest procurement programs

Although it is essential that contracting officers use all 

tools available to leverage the Government’s buying 

power when negotiating contracts, the results of OIG 

audits are not being fully used. While the contracting 

officers agreed with the audit recommendations, only a 

portion of recommended savings was actually achieved. 

As the acquisitions become more technically and 

financially complex, GSA is challenged to develop an 

acquisition workforce with the skills and knowledge 

necessary to provide innovative solutions for customer 

agencies at the best value. Additional challenges 

include: effectively performing price analyses, negotiating 

contracts, enforcing contract compliance, and managing 

contract workload. There are also concerns with the 

proposed methodology changes to the General Services 

Administration Acquisition Manual and the need to 

strengthen controls over the Schedules program.

The FY 2015 budget for the Acquisition Services Fund 

includes funding for a number of new initiatives and 

offerings that will enable better negotiation of contracts 

within the Schedules Program and help provide improved 

solutions to customer agencies at the best value, 

Examples include: a prices paid portal to help better 

evaluate and negotiate savings across different 

acquisition vehicles, GSA’s One Acquisition Solution for 

Integrated Services (OASIS) contract to help agencies 

better manage complex acquisitions, and a Common 

Acquisition Platform that will be more useful to both 

contractor officers and customer agencies in managing 

contract workload, enforcing contract compliance, and 

performing prices analyses. The FY 2015 budget for the 

Working Capital Fund (WCF) also includes funding for an 

Emerging Leaders program within the Office of Human 

Resource Management (OHRM) program that will 

include funding to hire and train acquisition professionals 

to be placed in the Federal Acquisition Service to 

develop innovative solutions for customer agencies at 

best value. 

Organizational Structure

Management Challenge GSA Actions

In the past, GSA had been a decentralized organization. 

GSA’s Central Office provided central management and 

support organizations, while the Public Buildings Service 

(PBS) and Federal Acquisition Service (FAS) operated 

separately from one another; each with its own 

management, support organizations, and regional 

operations. In FY 2012, the GSA Administrator began 

consolidating the support services and administrative 

functions to strengthen and streamline GSA in an effort 

to increase transparency and accountability throughout 

the Agency. In moving forward with the consolidation, 

GSA needs to reassess many aspects of its controls and 

systems due to the integration of staff, work processes, 

funding, reporting structures, and systems. In addition, 

the Agency will need to undergo a change in culture as 

many decisions impacting the operations of the services 

are now made centrally.

The FY 2015 budget request reflects implementation of 

the realigning of management and support functions 

under consolidated organizations funded by the Working 

Capital Fund. The FY 2015 budget reflects a reduction 

in costs for these organizations as GSA continues to 

transform and streamline the delivery of these support 

functions. To ensure controls and systems are aligned to 

this effort, GSA has implemented an improved IT

governance process to ensure current and new systems 

accommodate the integration of staff, work processes, 

funding, and reporting structures as necessary. As a 

part of the transformation effort, GSA is continually 

working to communicate progress on the consolidation 

and appropriately change the culture and ensure that 

decisions ultimately provide the services and taxpayer 

best value and savings.
U.S. General Services Administration

Management Challenges and GSA Actions

MC-3

Improving Management and Utilization of Federal Real Property

Management Challenge GSA Actions

GSA faces difficult resource constraints requiring 

proactive and flexible management practices. The 

Federal Government is focusing on improving the 

management and utilization of federal real property. To 

meet these goals, PBS needs to align its programs and 

operations to solutions that address both short and long 

term customer needs. Although immediate customer 

need often drives workload, local real property portfolios 

must be examined to assess whether they are suitable to 

meet long term goals, especially where vacant owned 

space could replace expiring leases.

GSA is doing its part to reduce the federal footprint by, 

among other actions, reducing the rentable square feet in 

our portfolio by one million square feet from FY 2014 to 

FY 2015

The Public Buildings Service's Office of Client Solutions 

develops Customer Portfolio Plans to review customers' 

entire inventory and create a long-term strategy for their 

real estate portfolio, which helps address this 

management challenge. The budget for the Federal 

Buildings Fund supports the continuation of this 

important activity. 

The Public Buildings Service's Office of Portfolio 

Management works to optimize the mix of leased and 

owned space within GSA's inventory. Where possible, 

they work to fill vacant owned space with tenants from 

expiring leases. The budget for the Federal Buildings 

Fund requests funding for this office and for specific 

projects that meet this goal. 

The Operating Expenses Account funds the Office of 

Real Property Utilization and Disposal, which helps 

agencies right-size their portfolios by disposing of 

unneeded properties, which also helps address this 

government-wide challenge. The budget for the 

Operating Expenses account requests funding for this 

office necessary meet customer agencies' need for these 

services. 

Managing a Mobile Workforce

Management Challenge GSA Actions

GSA’s reduction in workspace for its central and regional 

offices will create challenges in managing a mobile 

workforce. The mobile workforce strategy is expected to 

result in multiple benefits: reduced real estate costs, 

reduced carbon footprint, and improved work-life balance 

for employees. To achieve these benefits, GSA must 

overcome the challenges to this strategy, including: 

collaboration, management and supervision, document 

security, and information technology capability and 

support.

The FY 2015 budget request for the Working Capital 

Fund provides necessary funding to address this 

management challenge through the budgets for various 

offices and programs, including the Office of Human 

Resource Management (OHRM), Office of Administrative 

Services (OAS) and the Office of the Chief Information 

Officer (OCIO).

OAS in particular has a large role in meeting this 

challenge, as it s Management and Oversight Division 

oversees document management, FOIA requests, and 

directives management. The OAS Internal Workplace 

Management Division also has responsibility for enacting 

the policies and procedures related to GSA’s mobile 

workforce strategy. 
U.S. General Services Administration

Management Challenges and GSA Actions

MC-4

Information Technology

Management Challenge GSA Actions

GSA management faces challenges as it attempts to 

decommission and consolidate legacy systems that have 

never integrated with each other. This has led to 

duplicative systems that are costly and difficult to 

maintain and operate. These challenges include a 

decentralized operating environment, difficulty in 

reengineering business processes across the Agency, 

implementing enterprise architecture, and migrating 

legacy systems to new platforms. Improvements are 

needed to protect sensitive GSA information and to 

address emerging risks. Coordination, collaboration, and 

accountability across the agency are necessary to

protect sensitive GSA information. GSA IT systems do 

not always use effective data models, business rule 

validation checks, or data exchange specifications to 

ensure data quality. GSA’s continued adoption of mobile 

computing remains a risk that must be managed.

The FY 2015 budget reflects the consolidation of IT 

resource management under the GSA OCIO. Although 

some business specific IT systems and applications 

remain funded by the Acquisition Services Fund and 

Federal Buildings Fund, newly established IT 

governance boards ensure that IT decisions and 

investments are coordinated throughout the enterprise to 

ensure that new platforms that better integrated legacy 

systems are prioritized for additional investment.

Financial Reporting

Management Challenge GSA Actions

Improvements are needed in controls over budgetary 

accounting and financial reporting. GSA’s systems of 

accounting, financial management, and internal controls 

need to ensure management has reliable, useful, and 

timely financial and performance information for day-today decision making and accountability; as well as to 

deter fraud, waste, and abuse. Weaknesses in internal 

controls and financial processes hamper GSA’s financial 

reporting efforts. GSA is also challenged with identifying 

the existence of environmental contamination in its 

properties. Without an effective process in place, GSA 

will have difficulty determining remediation costs of 

environmental liabilities to report in its financial 

statements. Improvements are needed in the 

implementation of the due care process over 

environmental liabilities. Compounding the already 

existing challenge of estimating environmental liabilities, 

GSA is now required to report asbestos contamination by 

Federal Accounting Standards Advisory Board Technical 

Bulletin 2006-1, Recognition and Measurement of 

Asbestos-Related Cleanup Costs.

The FY 2015 budget for the Working Capital Fund 

provides necessary funding for addressing this 

management challenge in the budget for the Office of the 

Chief Financial Officer and the Office of the Chief 

Information Officer within the Working Capital Fund and 

in the Public Buildings Service within the Federal 

Buildings Fund (FBF). The FY 2015 budget reflects the 

consolidation of financial management operations under 

the OCFO and includes funding to standardize and 

provide greater oversight of budgetary execution controls 

and to develop consistent, standardized, and automated 

financial reports to enable better day-to-day decision 

making.

PBS, in conjunction with the Office of the Chief Financial 

Officer, has revised its due care process to appropriately 

identify environmental contamination in its properties. 

The revised process is scheduled for an FY 2014 

release.
U.S. General Services Administration

Management Challenges and GSA Actions

MC-5

Protection of Federal Facilities and Personnel

Management Challenge GSA Actions

Challenges persist to safeguard federal infrastructure 

and provide a secure work environment for federal 

employees. GSA plays a significant role in providing a 

safe, healthy, and secure environment for employees 

and visitors. GSA, along with the Department of 

Homeland Security, has been designated as being 

responsible for the security of federal facilities. 

Therefore, maintaining open, accessible, and safe public 

buildings remains a primary focus for GSA.

The Working Capital Fund's Office of Mission Assurance 

supports the agency's continuity mission by developing 

agency-wide guidance, policies, plans and procedures as 

well as tests, training and exercises to ensure readiness 

during a continuity event. The FY 2015 request for the 

Operating Expenses appropriation also includes some 

funding for this function.

To improve coordination with the Federal Protective 

Service (FPS), GSA now has a permanent liaison at FPS 

for improved data coordination among the agencies. The 

Office of Mission Assurance has assumed executive 

leadership for GSA’s relationship with FPS. It initiated a 

broad spectrum of interactions, including the 

development of a Common Operating Picture between 

the two organizations. These arrangements are expected 

to help mitigate communication gaps and enhance the 

risk resilience framework between GSA and FPS. 

Through this enhanced role, the Office of Mission 

Assurance has already disclosed concerns with 

accountability and unobligated funds regarding security 

goods and services provided by FPS.

GSA's Greening Initiative

Management Challenge GSA Actions

Challenges exist in achieving GSA’s sustainability and 

environmental goals. There are three obstacles to GSA's 

sustainability initiatives: (1) developing a management 

framework, (2) collecting data to support goals and 

evaluate results, and (3) funding specific programs. GSA 

plays a major role in federal construction, building 

operations, acquisition, and government-wide policy. 

GSA has received additional responsibilities to lead 

change towards sustainability in these areas and is 

required to increase energy efficiency, reduce 

greenhouse gas emissions, conserve water, reduce 

waste, support sustainable communities, and leverage 

federal purchasing power to promote environmentally 

responsible products and technologies.

The FY 2015 budget for the Federal Buildings Fund 

requests $40,000 thousand for Energy and Water 

Retrofit projects to help GSA meet this important goal. In 

addition, all new construction projects will be certified 

LEED Gold, and other repairs and alterations projects 

also help meet sustainability goals. 

GSA's Office of Government-wide Policy includes the 

Office of Federal High-Performance Green Buildings, 

which works to minimize the federal environmental 

footprint through the efficient use of energy, water, and 

resources. The Office of Federal High-Performance 

Green Building’s Sustainable Facilities Tool website and 

mobile application continue to provide guidance for 

greening projects. Its Green Procurement Compilation 

facilitates the procurement of green/sustainable products 

and services. In addition, GSA is able to monitor 

greenhouse gasses through the Carbon Footprint Tool to 

track progress towards achieving its reduction goal. This 

budget requests funding to support the efforts of this 

program. 

The Federal Acquisition Service is also working to offer 

and promote environmentally responsible products and 

technologies across many of its offerings including the 

Multiple Award Schedules (MAS)
U.S. General Services Administration

Management Challenges and GSA Actions

MC-6

American Recovery and Reinvestment Act of 2009

Management Challenge GSA Actions

GSA will continue to be affected through the conclusion 

of Recovery Act projects. GSA’s implementation of the 

Recovery Act continues to be challenging with increased 

workloads. Although many of these projects are 

completed or near completion, challenges remain, 

including: (1) managing projects with reduced travel; (2) 

preparing for the future submission of construction 

claims; (3) performing effective commissioning; and (4) 

evaluating projects for reduced energy consumption and 

cost savings.

The FY 2015 budget for the Federal Buildings Fund 

provides the resources necessary to accomplish this 

important activity, using regular FBF authority as 

Recovery funds for administrative functions ended in a 

prior fiscal year. These activities are the responsibility of

the PBS Office of Design and Construction.