UNITED STATES OFFICE OF PERSONNEL MANAGEMENT

Washington, DC 20415

The Director 

www.opm.gov Recruit, Retain and Honor a World-Class Workforce to Serve the American People www.usajobs.gov

JAN 2 9 2016

MEMORANDUM FOR HEADS OF EXECUTIVE DEPARTMENTS AND AGENCIES 

From: BETH F. COBERT

ACTING DIRECTOR

Subject: Executive Order Guidance - Strengthening the Senior Executive 

Service: Implementing the Executive Rotations Requirement

The U.S. Office of Personnel Management (OPM) is issuing this guidance as required in 

the December 15, 2015, Executive Order (EO) -"Strengthening the Senior Executive 

Service" (https://www.whitehouse.gov/the-press-office/2015/12/15/executive-orderstrengthening-senior-executive-service). The EO mandates a number of senior executive 

reform actions over the next three years. These actions include evaluation of the SES 

Qualification Review Board (QRB) process, review and simplification of the SES 

application process, and several improvements to SES development as they relate to 

executive onboarding, Executive Development Plans (EDPs), talent management and 

succession planning, and rotations. This guidance specifically addresses the rotations 

requirement of an annual Government-wide goal, beginning in FY 2017, that 15% of 

Federal executives will participate in rotations.

This guidance, in accordance with section 3(a)(v) of the EO, gives instruction for 

agencies with 20 or more SES members to "develop and submit to OPM (by May 3 l,

2016) a 2-year plan to increase the number of SES members who are rotating to

improve talent development, mission delivery and collaboration." This guidance 

outlines the scope of the various requirements for rotations that will result in an agency 

being deemed "compliant" with section 3(a)(v) of the EO. It is intended to allow 

agencies the latitude to customize the program that is most appropriate for their mission 

and the executive's developmental needs.

In addition to this guidance, OPM will provide support through forums, development of

technology to support the agency talent and succession management requirement, and 

other tools and resources. If you have questions about this guidance, please contact Steve 

Shih (Stephen.Shih@opm.gov), Julie Brill (Julie.Brill@opm.gov) or Cheryl Abram 

(Cheryl.Abram@opm.gov).

cc: Chief Human Capital Officers, Deputy Chief Human Capital Officers, Chief 

Learning Officers, Offices of Diversity of Inclusion, and the Council of the Inspectors 

General on Integrity and Efficiency

Attachment: Guidance for Implementing Executive Rotations
Executive Order Guidance - 

Strengthening the Senior Executive 

Service: Implementing the Executive 

Rotations Requirement 

On December 15, 2015, the White House issued an Executive Order (EO) on Strengthening the 

Senior Executive Service which outlines a plan to enhance the recruitment, hiring, and 

development of the Federal Government's senior executives. The EO can be read in full at the 

following link: https://www.whitehouse.gov/the-press-office/2015/12/15/executive-orderstrengthening-senior-executive-service. The U.S. Office of Personnel Management (OPM) is 

providing guidance in accordance with section 3(a)(v) of the order, which calls for agencies to 

"develop and submit to OPM a 2-year plan to increase the number of SES members who are 

rotating to improve talent development, mission delivery and collaboration" by May 31, 2016.

This guidance outlines the scope of the various requirements for rotations, achievement of which 

will permit an agency to be deemed "compliant" with section 3(a)(v) of the order. The guidance 

is intended to allow agencies the latitude to customize the program that is most appropriate for 

their missions and the executive's developmental needs. OPM will release additional guidance 

to assist agencies to implement the requirement for rotations, as well as other EO mandates.

INTRODUCTION 

The Senior Executive Service (SES) is comprised of the top career Federal managers responsible 

for ensuring the continuity and success of our Government. As the keystone of the Civil Service 

Reform Act of 1978, the SES was established to "...ensure that the executive management of the 

Government of the United States is responsive to the needs, policies, and goals of the Nation and 

otherwise is of the highest quality." 5U.S.C.§3131 Faced with constant challenges, changing 

technologies, and a fluid environment, executives must continually look for ways to broaden 

their perspectives and sharpen their skills to meet this demanding objective. Continuous 

professional development is imperative to an executive's success.

The intent behind the 1978 law was to create a corps of seasoned leaders with broad and diverse 

experiences who can lead a variety of organizations. Rotations are an opportunity to cultivate 

such experiences, and to improve talent development, mission delivery, and collaboration.

Research has also shown that on-the-job experiences, such as rotations, contribute to 70% of an 

executive's learning.1 Rotations can deepen an executive's understanding of the impact of the 

agency's work on those it serves; leading to both increased engagement and improved sense of 

mission. In one example, Federal employees who rotated to local governments cited a more than 

30% increase in job satisfaction and a better understanding of the needs of local governments -

1

 OPM Executive Development Best Practices Guide, November 2012
SES EO Rotations Guidance-January 29, 2016

2

which can be crucial to a Federal agency's delivery of its mission.2 For more information on the 

benefits of executive mobility, please see a report published by the Partnership for Public Service 

and McKinsey & Company, titled "Mission Driven Mobility: Strengthening Our Government 

Through a Mobile Leadership Corps": 

http://ourpublicservice.org/publications/viewcontentdetails.php?id-79.

IMPLEMENTING EXECUTIVE ROTATIONS AT YOUR AGENCY

For the purposes of this EO, a rotation is defined as, "a development process, involving 

movement to another position or an assignment that broadens the executive's knowledge, skill 

and experience in order to improve talent development, mission delivery and collaboration. " A 

rotation must last a minimum of 120 consecutive calendar days and provide experience outside 

the executive 's current role.

Examples of rotations include the following:

• Executive reassignment

• Executive transfer

• Developmental assignment internal to the agency, for example to another subcomponent,

functional area, or location (e.g., acting in another executive position, field executive

rotating to HQ or vice versa)

• Detail or developmental assignment external to the agency (e.g., Intergovernmental

Personnel Act (IPA) program; temporary assignment/detail to another Federal agency or

private sector where permitted by law)

• An assignment that includes full-time, extended service on a multi-agency or joint task

force or project team that may provide employees with sufficient interagency experience

to qualify as a rotation

• Sabbatical

Agencies have multiple options to help their executives obtain rotational assignments, including 

the use of the Intergovernmental Personnel Act (IPA) mobility program 

(https://www.opm.gov/policy-data-oversight/hiring-authorities/intergovernment-personnel-act/).

The JPA provides for the opportunity to rotate to State and local governments, colleges and

universities, tribal governments, and other eligible organizations. SES members also may 

accomplish rotations in internal and external departments, agencies, subcomponents, functional 

areas, sectors, and with non-Federal partners in accordance with existing governing statutory and 

regulatory provisions.

The requirements (specific to the EO) that define, support, and promote executive rotations are

as follows:

• Agencies with 20 or more SES positions shall develop and submit to OPM a 2-year plan

to increase or sustain their number of SES on rotations and rotational experiences; it

should be noted that agencies are encouraged, to implement rotational programs for their

Senior Level (SL) and Scientific or Professional (ST) employees as appropriate.

2

Strong Cities, Strong Communities Initiative 1" Annual Report, April 2013
SES EO Rotations Guidance-January 29, 2016

3

• Rotations must be for a minimum period of 120 calendar days

• Annual Government-wide goal, beginning in Fiscal Year (FY) 20 I 7, of 15% of SES

members on rotations (no agency-specific goal)

• Annual reporting to OPM on SES rotations

Opportunities for rotation should be linked to individual Executive Development Plans (EDP) 

and the agency's overarching annual talent management and succession planning process that all

agencies will create in phases as outlined in the EO. OPM has developed a sample EDP for 

agency use, and this EDP is available at: https://www.opm.gov/policy-data-oversight/seniorexecutive-service/executive-development/edptemplate.pdf.

CREATING A TWO YEAR EXECUTIVE ROTATIONS PLAN

Agencies with 20 or more SES positions must submit a 2-year plan to OPM outlining the 

rotations process, program or authorities that will accomplish the overarching goal of increasing 

the number of SES on rotations and improve the quality of the experience by May 31, 2016.

These plans should be informed by:

• Agency mission and policy priorities;

• Needs identified in existing agency hiring plans and succession plans;

• Agency needs and rules in context of administration transitions;

• Recommendations from the annual talent review process (EO Section 3(b)(i));

• The development opportunities listed in individuals' EDPs; and

• The Federal Government's interest in cultivating executives with broad and diverse

experiences who can lead in a variety of organizations, and at higher levels.

Rotations Goal: To improve 

talent development, mission 

delivery, and collaboration

Agencies with 20 or more SES

positions shall submit a 2 year 

plan submitted to OPM

Rotations must be 

for a minimum of 120 

calendar days

Annual 15% Government-wide 

goal of SES on rotations, 

beginning in FY 2017; no 

agency-specific goal

Annual reporting to OPM 

on SES rotations
SES EO Rotations Guidance-January 29, 2016

4

Below is a list of the information critical to establishing a planned, consistent, and systematic 

approach to executive rotation. Agencies' plans to increase the number of SES members on 

rotations to improve talent development, mission delivery, and collaboration must include the 

following information:

• Statement of objectives of the agency's rotations process;

• Description of how the executive rotations process ties to the agency's annual talent

management and succession planning process, as agencies develop them (please see below

for more information on the annual "Talent Management and Succession Planning

Process");

• Description of the agency's executive rotations programs, including processes, use of

rotational authorities, and activities to manage the rotations of executives in and out of the

agency (e.g., involvement of the Executive Resources Board (ERB), agency policies,

agency partnerships), specifically including:

o General milestones for implementation (i.e., how and when executives will be

informed of the opportunity to rotate) (*See sample milestones provided below),

and

o Overview of each agency's approach to facilitate the rotations process (including

how the agency will announce rotations broadly among SES, as appropriate, to

encourage transparency and fairness in the selection process, and subsequently

identify, fill, and manage rotation positions; and how the agency will reintegrate

returning executives);

o Description of what factors will be used to select executives for rotations;

• Description of how the agency will evaluate the success of the rotations program,

including metrics indicating how the agency will determine the degree to which these

rotation assignments achieve the desired goals for the individual and agency (e.g. number

of executives rotating, retention rates, Federal Employee Viewpoint Survey scores,

executive satisfaction). See Training Evaluation Field Guide for instruction on evaluating

programs. (https://www.opm.gov/policy-data-oversight/training-and-development/

reference-materials/training evaluation.pdf.) As a reminder, agencies are required by 5

CFR 410.202 to evaluate their training programs annually. Agencies should include costs

as one of the metrics for evaluating rotations;

• Description of the roles and responsibilities of individuals and organizations relating to

the agency's rotations process/program (e.g., Agency Head, ERB, Executive Resources

office, Chief Human Capital Officer (CHCO));

• Agency Point of Contact (name, email address and telephone number); and

• Signature of agency Senior Accountability Officer (SAO) and Deputy Secretary, or their

designee, for the implementation of the Executive Order on "Strengthening the Senior

Executive Service" (including date of signature and the official's title, email address and

telephone number).

The plan must be signed and dated by the agency's Senior Accountability Officer and Deputy 

Secretary, or their designee, to ensure the implementation of the rotation strategy, as well as

tracking and reporting of rotations to OPM. All agencies with 20 or more executives must send 

by e-mail scanned copies of their plans to SESDevelopment@opm.gov, by May 31, 2016, and 

indicate "EO Rotations Plan" in the subject line.
SES EO Rotations Guidance-January 29, 2016

FIFTEEN PERCENT (15%) GOVERNMENT-WIDE ROTATION GOAL

The EO set an annual Government-wide goal of I 5 percent of executives on rotations lasting a 

minimum of 120 calendar days, with no agency-specific goal. It is expected some agencies may 

rotate more than 15 percent annually, and others may rotate less than 15 percent to achieve the 

Government-wide goal.

The frequency of SES rotations in any specific agency will depend on agency and individual 

needs. Not every executive in an agency is required to rotate; however, each agency should 

implement a systematic process to assess the development needs of each executive and the needs 

of the agency, enabling the agency to make strategic decisions on rotations and other types of 

development (see below for information on the annual Talent Management and Succession 

Planning Process).

SAMPLE AGENCY TIMELINE

A sample timeline of activities is provided below to help Departments and agencies develop and 

implement executive rotations programs. Agencies will differ in their approaches and processes 

based on each agency's individual and unique situations and needs. 

Key Milestones to Consider in Developing a Rotations Program Plan 

Phase 1: Collect Data Phase 2: Strategy 

Planning 

Phase 3: Development Phase 4: Implementation 

& Monitoring 

Examine agency data related 

to executive turnover, 

engagement, talent 

management, and resources; 

review current baseline 

rotation data, which SES are 

on rotations, and how 

rotations are defined; review 

data on number of executives 

with EDPs. 

Convene: stakeholders with 

diverse departmental 

representatives to discuss 

data, and to review options for 

policies, resources and 

gaining buy-in from 

executives. 

Present rotations strategy to 

Senior Accountability Officer 

and appropriate senior leaders 

and departments to gain 

approvals and buy-in. 

Inform executive supervisors 

and executives about rotation 

and reassignment 

opportunities to include clear 

guidance on how executives 

will be appropriately 

assigned, commensurate with 

new experience, upon return 

from a rotation when they are 

not returning to their original 

position. 

Identify existing processes 

related to executive rotations 

and authorities used (e.g., 

IPA). 

Establish a mechanism for 

gathering baseline data that 

could be used as a comparison 

for tracking rotation success. 

Assign a task force to begin 

program development. 

Communicate with 

stakeholders regarding the 

impact of the rotations. 

Identify executive needs and 

organizational constraints 

related to rotations (either 

through an assessment or 

conversation with executives 

and their supervisors). 

Develop a communications 

roll-out plan. 

Begin development of an 

organization-wide rotations 

policy/process/program.

Collect and review metrics 

periodically to track the 

potential impact of the 

rotations. 

Plan a coordinated approach 

to announce and promote 

executive rotations. 

Establish a feedback system 

for executives, department 

heads, senior leaders, 

supervisors and other 

employees to gain ongoing 

input into streamlining the 

rotations process. 

5
SES EO Rotations Guidance - January 29, 2016 

6

ROTATIONS AND THE ANNUAL TALENT MANAGEMENT AND SUCCESSION 

PLANNING PROCESS 

In addition to the executive rotations requirement, the EO includes other actions for phased 

implementation including an "annual talent management and succession planning process to

assess the development needs of all SES members, and SL and ST employees as appropriate, to 

inform readiness decisions about hiring, career development, and executive reassignments and 

rotations. These assessments shall include input from each executive, as well as the executive’s 

supervisor, and shall be used to recommend development activities and inform the organization's 

succession planning, decisions about duty assignments, and agency hiring plans. " 

Select agencies will phase this annual process in over the period of 3 years, with program 

development starting with the release of the EO, and final implementation beginning by October 

2016. OPM recommends every agency participating in executive rotations (agencies with 20 or 

more SES positions) establish and implement this or a similar process, to inform selection of 

executives for rotation or reassignment, as soon as possible. 

The annual talent management and succession planning process should take into consideration 

the capacity, potential, and career development needs of an executive before recommending 

development activities (e.g. reassignment, detail, coaching). The process is a series of structured, 

facilitated meetings involving the review of each executive's key strengths, career goals, stage of

readiness, and areas for development. The agency Executive Resources Board (ERB), or a 

Board delegated and overseen by the ERB, and the executive's supervisor should participate in

the meeting. The information from these meetings is used to inform the executive's formal 

development activities for the year. The information should also be captured on a summary 

spreadsheet (or an alternative appropriate method) and used as a working tool for managing 

talent. It is important to note that the talent review process is meant to be a regular, ongoing 

process. Organizational goals and career plans change over both the short- and long-term and it 

is essential to keep the information current.

Keep in mind the Talent Management and Succession Planning is not just about individual 

development but it is also about ensuring the agency has a slate of individuals ready to assume 

the next leadership level should someone retire, etc. It is about strategically developing and 

managing talent.

ANNUAL REPORTING TO OPM

In addition to the internal agency monitoring and evaluation activities outlined in your plan, the 

EO requires "regular reporting on the status of each agency's implementation of the provisions 

of the order." OPM will report to the President annually on the status of agency rotations and 

accomplishment of the annual fifteen percent (15%) Government-wide goal. To facilitate this 

requirement, agencies will need to:

(1) Establish a reliable internal executive rotations tracking process, and
SES EO Rotations Guidance - January 29, 2016 

7

(2) Accurately report this data to OPM on an annual basis.

While agencies should track and measure data to determine the effectiveness of rotations, 

agencies must also track and submit the following data to OPM:

• Total# of executives broken out by SES, SL, and ST who have served on a rotational

assignment a minimum of 120 calendar days during that FY

• Total# of agency executives broken out by SES, SL, and ST during that FY.

• # of each type of rotation (developmental assignment, detail, sabbatical, reassignment,

transfer, acting in another executive position, IPA)

• # of internal agency rotations

• # of rotations to another Federal agency

• # of rotations outside the Federal Government, indicating specific categories where

appropriate (i.e., State government, local government, non-profit, private sector)

Note: In the case of transfers, the gaining agency will track and report the transfer as a rotation. 

Note: In the case of a detail or developmental assignment external to the agency, the home 

agency will track and report the assignment as a rotation.

Note: SL and ST do not count toward the Government-wide 15% target. Agencies are

encouraged to implement rotational programs for their SL and ST employees as appropriate.

Along with this information, OPM may also gather additional data, for reporting purposes, 

through interviews and focus groups with agency executives and those responsible for 

implementing the rotations process in the agency.

The first request for data will occur at the end of FY 2017. At that time, OPM will contact each 

agency's responsible executive, identified in the 2-year plan (i.e., SAO), with detailed 

information about data submission.

A COMMITMENT TO MOBILITY

Rotational assignments often provide executives with extremely valuable experiential learning 

opportunities; however, even private-sector organizations experience cultural resistance to the 

use of such developmental opportunities. For example, supervisors and managers may be 

reluctant to allow their high-performing employees to participate in a rotational assignment 

because they will be losing a valuable resource for a significant period of time. It can take 

organizations several years to overcome such hurdles and cultural resistance. To facilitate 

change, organizations should consider creating a program where employees are exchanged, and 

no office is left without a resource. Ultimately, rotations are beneficial because they enable 

individuals to broaden their perspectives and networks, become more effective leaders, and help 

their organizations better meet their mission needs.
SES EO Rotations Guidance - January 29, 2016 

8

Agencies that are implementing systematic talent management and succession planning 

processes for the first time should ensure due attention to change management considerations, as 

agency organizations, leaders, and rotation participants become familiar with the process. 

Agencies with a newly instituted, as well as mature talent management and succession planning 

process should continue to emphasize proactive and regular communication to update their 

workforce on the rotations program and its progress. As talent management and the rotational 

assignments are implemented, agencies will be able to measure the effectiveness of the programs 

and continue building and communicating the business case and value of the programs.

OPM recognizes the complexity of coordinating an effective and sustainable Talent Management 

and Succession Planning process and encourages agencies to leverage resources from multiple 

agency functions including, but not limited to, Executive Resources, Human Resources, 

Training and Development, etc.

EXECUTIVE ORDER MILESTONES RELATED TO EXECUTIVE 

DEVELOPMENT 

Date Deliverable/ Action

February - May All Agency SES Rotations Program Planning Process [3(a)(v)]

May 31, 2016 2017-2018 All Agency SES Rotations Program Plans' Due to OPM

February - September Phase 1 Agency Planning Process for sections 3(b)(i)-(iv)

October 1, 2016 All Agencies with more than 20 SES begin Executive Rotations;

Phase 1 agencies are implementing 3(b)(i)-(iv) including the talent and 

succession management processes

October 1, 2016- February 1,

2017

Phase 1 Agencies begin Pilot lnteragency SES Rotations Program to

gain commitment, refine program design, and develop best practices

By October 1, 2017 OPM releases additional guidance with lessons learned from rotations 

and Phase 1 (3(b))

October 1, 2017 Phase 2 agencies are implementing 3(b)(i)-(iv) including the talent and 

succession management processes

By October 1, 2018 OPM releases additional guidance with lessons learned from Phase 2 and 

any adjustments to the reforms (3(b))

October 1, 2018 Phase 3 agencies are implementing 3(b)(i)-(iv) including the talent and

succession management processes; OPM evaluates and issues additional 

guidance, as needed, reflecting lessons learned

By October 1, 2019 OPM releases additional guidance with lessons learned from Phase 3 and 

any adjustments to the reforms (3(b)) 
SES EO Rotations Guidance - January 29, 2016 

9

Note: The EO further mandates executive development in several other areas in a phased 

approach: 

(i) Establish an annual talent management and succession planning process to assess

the development needs of all SES members, and SL and ST employees as appropriate;

(ii) Proactively recruit individuals for vacant SES positions;

(iii) Require supervisors of executives to work with their subordinate executives to update

Executive Development Plan (EDPs) (OPM has developed a sample EDP for agency

use, and this EDP is available at: https://www.opm.gov/policy-data-oversight/

senior-executive-service/executive-development/edptemplate.pdf; EDPs will include

at least one developmental activity annually and at least one leadership assessment

involving employee feedback every three years;

(iv) Establish a formal Executive Onboarding Program informed by OPM's Enhanced

Executive Onboarding Model and Framework

Agencies in the first phase must have their implementation plans in place and be conducting 

these activities by September 30, 2016. Agencies in the second phase must do the same by 

September 30, 2017. The remaining agencies must meet these requirements by September 30, 

2018. Below is a table that lists the agencies in each of the three phases.
SES EO Rotations Guidance - January 29, 2016 

10

Phase 1 (FY16) Phase 2 (FY17) Phase 3 (FY18)

HHS EPA Commerce 

HUD Education State 

Energy USDA DHS 

VA NASA Treasury 

GSA Transportation DOI 

OPM Labor DOJ

DOD SBA NSF 

SSA* USAID 

OMB

* SSA is not listed in the ED because they are an independent agency but they have requested to implement in

phase 1.