II 

Calendar No. 166 

114TH CONGRESS 

1ST SESSION S. 1172 

[Report No. 114–94] 

To improve the process of presidential transition. 

IN THE SENATE OF THE UNITED STATES 

APRIL 30, 2015 

Mr. CARPER (for himself and Mr. JOHNSON) introduced the following bill; 

which was read twice and referred to the Committee on Homeland Security and Governmental Affairs 

JULY 27, 2015 

Reported by Mr. JOHNSON, with amendments 

[Insert the part printed in italic] 

A BILL 

To improve the process of presidential transition. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the ‘‘Edward ‘Ted’ Kaufman 

5 and Michael Leavitt Presidential Transitions Improve6 ments Act of 2015’’. 


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1 SEC. 2. PRESIDENTIAL TRANSITION IMPROVEMENTS. 

2 (a) IN GENERAL.—The Presidential Transition Act 

3 of 1963 (3 U.S.C. 102 note) is amended— 

4 (1) by redesignating sections 4, 5, and 6 as sec5 tions 5, 6, and 7, respectively; and 

6 (2) by inserting after section 3 the following: 

7 ‘‘SEC. 4. TRANSITION SERVICES AND ACTIVITIES BEFORE 

8 ELECTION. 

9 ‘‘(a) DEFINITIONS.—In this section— 

10 ‘‘(1) the term ‘Administrator’ means the Ad11 ministrator of General Services; 

12 ‘‘(2) the term ‘agency’ means an Executive 

13 agency, as defined in section 105 of title 5, United 

14 States Code; 

15 ‘‘(3) the term ‘eligible candidate’ has the mean16 ing given that term in section 3(h)(4); and 

17 ‘‘(4) the term ‘Presidential election’ means a 

18 general election held to determine the electors of 

19 President and Vice President under section 1 or 2 

20 of title 3, United States Code. 

21 ‘‘(b) GENERAL DUTIES.—The President shall take 

22 such actions as the President determines necessary and 

23 appropriate to plan and coordinate activities by the Execu24 tive branch of the Federal Government to facilitate an effi25 cient transfer of power to a successor President, including 

26 by— 


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1 ‘‘(1) establishing and operating a White House 

2 transition coordinating council in accordance with 

3 subsection (d); and 

4 ‘‘(2) establishing and operating an agency tran5 sition directors council in accordance with subsection 

6 (e). 

7 ‘‘(c) FEDERAL TRANSITION COORDINATOR.—The 

8 Administrator shall designate an employee of the General 

9 Services Administration who is a senior career appointee 

10 to— 

11 ‘‘(1) carry out the duties and authorities of the 

12 General Services Administration relating to Presi13 dential transitions under this Act or any other provi14 sion of law; 

15 ‘‘(2) serve as the Federal Transition Coordi16 nator with responsibility for coordinating transition 

17 planning across agencies, including through the 

18 agency transition directors council established under 

19 subsection (e); 

20 ‘‘(3) ensure agencies comply with all statutory 

21 requirements relating to transition planning and re22 porting; and 

23 ‘‘(4) act as a liaison to eligible candidates. 

24 ‘‘(d) WHITE HOUSE TRANSITION COORDINATING

25 COUNCIL.— 


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1 ‘‘(1) ESTABLISHMENT.—Not later than 6 

2 months before the date of a Presidential election, the 

3 President shall establish a White House transition 

4 coordinating council for purposes of facilitating the 

5 Presidential transition. 

6 ‘‘(2) DUTIES.—The White House transition co7 ordinating council shall— 

8 ‘‘(A) provide guidance to agencies and the 

9 Federal Transition Coordinator regarding prep10 arations for the Presidential transition, includ11 ing succession planning and preparation of 

12 briefing materials; 

13 ‘‘(B) facilitate communication and infor14 mation sharing between the transition rep15 resentatives of eligible candidates and senior 

16 employees in agencies and the Executive Office 

17 of the President; and 

18 ‘‘(C) prepare and host interagency emer19 gency preparedness and response exercises. 

20 ‘‘(3) MEMBERSHIP.—The members of the 

21 White House transition coordinating council shall in22 clude— 

23 ‘‘(A) senior employees of the Executive 

24 branch selected by the President, which may in25 clude the Chief of Staff to the President, any 


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1 Cabinet officer, the Director of the Office of 

2 Management and Budget, the Administrator, 

3 the Director of the Office of Personnel Manage4 ment, the Director of the Office of Government 

5 Ethics, and the Archivist of the United States; 

6 ‘‘(B) the Federal Transition Coordinator; 

7 ‘‘(C) the transition representative for each 

8 eligible candidate, who shall serve in an advi9 sory capacity; and 

10 ‘‘(D) any other individual the President de11 termines appropriate. 

12 ‘‘(4) CHAIRPERSON.—The Chairperson of the 

13 White House transition coordinating council shall be 

14 a senior employee in the Executive Office of the 

15 President, designated by the President. 

16 ‘‘(e) AGENCY TRANSITION DIRECTORS COUNCIL.— 

17 ‘‘(1) IN GENERAL.—The President shall estab18 lish and operate an agency transition directors coun19 cil, which shall— 

20 ‘‘(A) ensure the Federal Government has 

21 an integrated strategy for addressing inter22 agency challenges and responsibilities around 

23 Presidential transitions and turnover of non24 career appointees; 


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1 ‘‘(B) coordinate transition activities be2 tween the Executive Office of the President, 

3 agencies, and the transition team of eligible 

4 candidates and the President-elect and Vice5 President-elect; and 

6 ‘‘(C) draw on guidance provided by the 

7 White House transition coordinating council 

8 and lessons learned from previous Presidential 

9 transitions in carrying out its duties. 

10 ‘‘(2) DUTIES.—As part of carrying out the re11 sponsibilities under paragraph (1), the agency tran12 sition directors council shall— 

13 ‘‘(A) assist the Federal Transition Coordi14 nator in identifying and carrying out the re15 sponsibilities of the Federal Transition Coordi16 nator relating to a Presidential transition; 

17 ‘‘(B) provide guidance to agencies in gath18 ering briefing materials and information relat19 ing to the Presidential transition that may be 

20 requested by eligible candidates; 

21 ‘‘(C) ensure materials and information de22 scribed in subparagraph (B) are prepared not 

23 later than November 1 of a year during which 

24 a Presidential election is held; 


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1 ‘‘(D) ensure agencies adequately prepare 

2 career employees who are designated to fill non3 career positions under subsection (f) during a 

4 Presidential transition; and 

5 ‘‘(E) consult with the President’s Manage6 ment Council, or any successor thereto, in car7 rying out the duties of the agency transition di8 rectors council. 

9 ‘‘(3) MEMBERSHIP.—The members of the agen10 cy transition directors council shall include— 

11 ‘‘(A) the Federal Transition Coordinator, 

12 who shall serve as Chairperson of the agency 

13 transition directors council; 

14 ‘‘(B) a senior employee serving in the Ex15 ecutive Office of the President, who shall be ap16 pointed by the President; 

17 ‘‘(C) a senior representative from each 

18 agency described in section 901(b)(1) of title 

19 31, United States Code, the Office of Personnel 

20 Management, the Office of Government Ethics, 

21 and the National Archives and Records Admin22 istration whose responsibilities include leading 

23 Presidential transition efforts within the agen24 cy; 


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1 ‘‘(D) a senior representative from any 

2 other agency determined by the Federal Transi3 tion Coordinator to be an agency that has sig4 nificant responsibilities relating to the Presi5 dential transition process; and 

6 ‘‘(E) during a year during which a Presi7 dential election will be held, a transition rep8 resentative for each eligible candidate, who shall 

9 serve in an advisory capacity. 

10 ‘‘(4) MEETINGS.—The agency transition direc11 tors council shall meet— 

12 ‘‘(A) subject to subparagraph (B), not less 

13 than once per year; and 

14 ‘‘(B) during the period beginning on the 

15 date that is 6 months before a Presidential elec16 tion and ending on the date on which the Presi17 dent-elect is inaugurated, on a regular basis as 

18 necessary to carry out the duties and authori19 ties of the agency transition directors council. 

20 ‘‘(f) INTERIM AGENCY LEADERSHIP FOR TRANSI21 TIONS.— 

22 ‘‘(1) OVERSIGHT AND IMPLEMENTATION OF

23 TRANSITION.—Not later than 6 months before the 

24 date of a Presidential election, the head of each 

25 agency shall designate a senior career employee of 


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1 the agency and a senior career employee of each 

2 major component and subcomponent of the agency 

3 to oversee and implement the activities of the agen4 cy, component, or subcomponent relating to the 

5 Presidential transition. 

6 ‘‘(2) ACTING OFFICERS.—Not later than Sep7 tember 15 of a year during which a Presidential 

8 election occurs, and in accordance with subchapter 

9 III of chapter 33 of title 5, United States Code, for 

10 each noncareer position in an agency that the head 

11 of the agency determines is critical, the head of the 

12 agency shall designate a qualified career employee to 

13 serve in the position in an acting capacity if the po14 sition becomes vacant. 

15 ‘‘(g) MEMORANDUMS OF UNDERSTANDING.— 

16 ‘‘(1) IN GENERAL.—Not later than November 1 

17 of a year during which a Presidential election oc18 curs, the President (acting through the Federal 

19 Transition Coordinator) shall, to the maximum ex20 tent practicable, negotiate a memorandum of under21 standing with the transition representative of each 

22 eligible candidate, which shall include, at a min23 imum, the conditions of access to employees, facili24 ties, and documents of agencies by transition staff. 


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1 ‘‘(2) EXISTING RESOURCES.—To the maximum 

2 extent practicable, the memorandums of under3 standing negotiated under paragraph (1) shall be 

4 based on memorandums of understanding from pre5 vious Presidential transitions. 

6 ‘‘(h) EQUITY IN ASSISTANCE.—Any information or 

7 other assistance provided to eligible candidates under this 

8 section shall be offered on an equal basis and without re9 gard to political affiliation. 

10 ‘‘(i) REPORTS.— 

11 ‘‘(1) IN GENERAL.—The President, acting 

12 through the Federal Transition Coordinator, shall 

13 submit to the Committee on Oversight and Govern14 ment Reform of the House of Representatives and 

15 the Committee on Homeland Security and Govern16 mental Affairs of the Senate reports describing the 

17 activities undertaken by the President and agencies 

18 to prepare for the transfer of power to a new Presi19 dent. 

20 ‘‘(2) TIMING.—The reports under paragraph 

21 (1) shall be provided 6 months and 3 months before 

22 the date of a Presidential election.’’. 

23 (b) OTHER IMPROVEMENTS.—Section 3 of the Presi24 dential Transition Act of 1963 (3 U.S.C. 102 note) is 

25 amended— 


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1 (1) in subsection (a)— 

2 (A) in paragraph (8)— 

3 (i) in subparagraph (A)(i)— 

4 (I) by inserting ‘‘and during the 

5 term of a President’’ after ‘‘during 

6 the transition’’; and 

7 (II) by striking ‘‘after inaugura8 tion’’; and 

9 (ii) in subparagraph (B), by inserting 

10 ‘‘or Executive agencies (as defined in sec11 tion 105 of title 5, United States Code)’’ 

12 before the period; and 

13 (B) in paragraph (10), by inserting ‘‘in14 cluding, to the greatest extent practicable, 

15 human resource management system software 

16 compatible with the software used by the in17 cumbent President and likely to be used by the 

18 President-elect and Vice President-elect’’ before 

19 the period; 

20 (2) in subsection (b)(2), by striking ‘‘30 days’’ 

21 and inserting ‘‘180 days’’; 

22 (3) in subsection (g), by inserting ‘‘except for 

23 activities under subsection (a)(8)(A),’’ before ‘‘there 

24 shall be no’’; and 


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1 (4) in subsection (h)(2), by adding at the end 

2 the following: 

3 ‘‘(D) An eligible candidate shall have a right to the 

4 services and facilities described in this paragraph until the 

5 date on which the Administrator is able to determine the 

6 apparent successful candidates for the office of President 

7 and Vice President.’’. 

8 (c) TECHNICAL AND CONFORMING AMENDMENTS.— 

9 (1) Section 3 of the Pre-Election Presidential 

10 Transition Act of 2010 (3 U.S.C. 102 note) is re11 pealed. 

12 (2) The Presidential Transition Act of 1963 (3 

13 U.S.C. 102 note) is amended— 

14 (A) in section 3— 

15 (i) in subsection (a)(4)(B), by striking 

16 ‘‘section 6’’ and inserting ‘‘section 7’’; 

17 (ii) in subsection (b), in the matter 

18 preceding paragraph (1), by striking ‘‘sec19 tion 3 of this Act’’ and inserting ‘‘this sec20 tion’’; and 

21 (iii) in subsection (h)(3)(B)(iii), by 

22 striking ‘‘section 5’’ each place it appears 

23 and inserting ‘‘section 6’’; 

24 (B) in section 6, as redesignated by sub25 section (a) of this section, by striking ‘‘section 


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1 6(a)(1)’’ each place it appears and inserting 

2 ‘‘section 7(a)(1)’’; and 

3 (C) in section (7)(a)(2), as redesignated by 

4 subsection (a) of this section, by striking ‘‘sec5 tion 4’’ and inserting ‘‘section 5’’. 

6 (3) Section 8331(1)(K) of title 5, United States 

7 Code, is amended by striking ‘‘section 4’’ and insert8 ing ‘‘section 5’’. 

9 (4) Section 8701(a)(10) of title 5, United 

10 States Code, is amended by striking ‘‘section 4’’ and 

11 inserting ‘‘section 5’’. 

12 (5) Section 8901(1)(I) of title 5, United States 

13 Code, is amended by striking ‘‘section 4’’ and insert14 ing ‘‘section 5’’. 

15 SEC. 3. NATIONAL ARCHIVES PRESIDENTIAL TRANSITION. 

16 Section 2203(g) of title 44, United States Code, is 

17 amended— 

18 (1) by redesignating paragraph (3) as para19 graph (4); and 

20 (2) by inserting after paragraph (2) the fol21 lowing: 

22 ‘‘(3) When the President considers it prac23 ticable and in the public interest, the President shall 

24 include in the President’s budget transmitted to 

25 Congress, for each fiscal year in which the term of 


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1 office of the President will expire, such funds as may 

2 be necessary for carrying out the authorities of this 

3 subsection.’’. 

4 SEC. 4. REPORTS ON POLITICAL APPOINTEES APPOINTED 

5 TO NONPOLITICAL PERMANENT POSITIONS. 

6 (a) DEFINITIONS.—In this section— 

7 (1) the term ‘‘agency’’ has the meaning given the 

8 term ‘‘Executive agency’’ in section 105 of title 5, 

9 United States Code; 

10 (2) the term ‘‘covered civil service position’’ 

11 means a position in the civil service (as defined in 

12 section 2101 of title 5, United States Code) that is 

13 not— 

14 (A) a temporary position; or 

15 (B) a political position; 

16 (3) the term ‘‘former political appointee’’ means 

17 an individual who— 

18 (A) is not serving in an appointment to a 

19 political position; and 

20 (B) served as a political appointee during 

21 the 5-year period ending on the date of the re22 quest for an appointment to a covered civil serv23 ice position in any agency; 


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1 (4) the term ‘‘political appointee’’ means an in2 dividual serving in an appointment to a political po3 sition; and 

4 (5) the term ‘‘political position’’ means— 

5 (A) a position described under sections 5312 

6 through 5316 of title 5, United States Code (re7 lating to the Executive Schedule); 

8 (B) a noncareer appointment in the Senior 

9 Executive Service, as defined under paragraph 

10 (7) of section 3132(a) of title 5, United States 

11 Code; or 

12 (C) a position in the executive branch of the 

13 Government of a confidential or policy-deter14 mining character under schedule C of subpart C 

15 of part 213 of title 5, Code of Federal Regula16 tions. 

17 (b) REPORTING ON CURRENT OR RECENT POLITICAL

18 APPOINTEES APPOINTED TO COVERED CIVIL SERVICE PO19 SITIONS.—The Director of the Office of Personnel Manage20 ment shall submit to the Committee on Homeland Security 

21 and Governmental Affairs of the Senate and the Committee 

22 on Oversight and Government Reform of the House of Rep23 resentatives a quarterly report regarding requests by agen24 cies to appoint political appointees or former political ap25 pointees to covered civil service positions, which shall— 


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1 (1) for each request by an agency that a political 

2 appointee be appointed to a covered civil service posi3 tion during the period covered by the quarterly re4 port, provide— 

5 (A) the date on which the request was re6 ceived by the Office of Personnel Management; 

7 (B) subject to subsection (c), the name of the 

8 individual and the political position held by the 

9 individual, including title, office, and agency; 

10 (C) the date on which the individual was 

11 first appointed to a political position in the 

12 agency in which the individual is serving as a 

13 political appointee; 

14 (D) the grade and rate of basic pay for the 

15 individual as a political appointee; 

16 (E) the proposed covered civil service posi17 tion, including title, office, and agency, and the 

18 proposed grade and rate of basic pay for the in19 dividual; 

20 (F) whether the Office of Personnel Manage21 ment approved or denied the request; and 

22 (G) the date on which the individual was 

23 appointed to a covered civil service position, if 

24 applicable; and 


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1 (2) for each request by an agency that a former 

2 political appointee be appointed to a covered civil 

3 service position during the period covered by the 

4 quarterly report, provide— 

5 (A) the date on which the request was re6 ceived by the Office of Personnel Management; 

7 (B) subject to subsection (c), the name of the 

8 individual and the political position held by the 

9 individual, including title, office, and agency; 

10 (C) the date on which the individual was 

11 first appointed to any political position; 

12 (D) the grade and rate of basic pay for the 

13 individual as a political appointee; 

14 (E) the date on which the individual ceased 

15 to serve in a political position; 

16 (F) the proposed covered civil service posi17 tion, including title, office, and agency, and the 

18 proposed grade and rate of basic pay for the in19 dividual; 

20 (G) whether the Office of Personnel Manage21 ment approved or denied the request; and 

22 (H) the date on which the individual was 

23 first appointed to a covered civil service position, 

24 if applicable. 


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1 (c) NAMES AND TITLES OF CERTAIN APPOINTEES.— 

2 If determined appropriate by the Director of the Office of 

3 Personnel Management, a report submitted under sub4 section (b) may exclude the name or title of a political ap5 pointee or former political appointee— 

6 (1) who— 

7 (A) was requested to be appointed to a cov8 ered civil service position; and 

9 (B) was not appointed to a covered civil 

10 service position; or 

11 (2) relating to whom a request to be appointed 

12 to a covered civil service position is pending at the 

13 end of the period covered by that report. 

14 SEC. 5. REPORT ON REGULATIONS PROMULGATED NEAR 

15 THE END OF PRESIDENTIAL TERMS. 

16 (a) DEFINITIONS.—In this section— 

17 (1) the term ‘‘covered presidential transition pe18 riod’’ means— 

19 (A) the 120-day period ending on January 

20 20, 1993. 

21 (B) the 120-day period ending on January 

22 20, 2001; 

23 (C) the 120-day period ending on January 

24 20, 2009; and 


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1 (D) the 120-day period ending on January 

2 20, 2017; 

3 (2) the term ‘‘covered regulation’’ means a final 

4 regulation promulgated by an Executive department; 

5 and 

6 (3) the term ‘‘Executive department’’ has the 

7 meaning given that term under section 101 of title 5, 

8 United States Code. 

9 (b) REPORTS.— 

10 (1) IN GENERAL.—The Comptroller General of 

11 the United States shall submit to the Committee on 

12 Homeland Security and Governmental Affairs of the 

13 Senate and the Committee on Oversight and Govern14 ment Reform of the House of Representatives a report 

15 regarding covered regulations promulgated during the 

16 covered presidential transition periods described in 

17 subparagraph (A), (B), or (C) of subsection (a)(1). 

18 (2) NEXT PRESIDENTIAL TRANSITION.—The 

19 Comptroller General of the United States shall submit 

20 to the Committee on Homeland Security and Govern21 mental Affairs of the Senate and the Committee on 

22 Oversight and Government Reform of the House of 

23 Representatives a report regarding covered regula24 tions promulgated during the covered presidential 

25 transition period described in subsection (a)(1)(D). 


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1 (3) CONTENTS OF REPORTS.—The reports re2 quired under paragraphs (1) and (2) shall, for each 

3 covered presidential transition period covered by the 

4 report— 

5 (A) compare the number, scope, and cost (if 

6 possible) of, and type of rulemaking procedure 

7 used for, covered regulations promulgated during 

8 the covered presidential transition period to the 

9 number, scope, and cost of, and type of rule10 making procedure used for, covered regulations 

11 promulgated during the 120-day periods ending 

12 on January 20 of each year after 1988, other 

13 than 1993, 2001, and 2009; 

14 (B) determine the statistical significance of 

15 any differences identified under subparagraph 

16 (A) and whether and to what extent such dif17 ferences indicate any patterns; 

18 (C) evaluate the size, scope, and effect of the 

19 covered regulations promulgated during the cov20 ered presidential transition period; and 

21 (D) assess the extent to which the regularly 

22 required processes for the promulgation of cov23 ered regulations were followed during the covered 

24 presidential transition period, including compli25 ance with the requirements under— 


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1 (i) chapter 8 of title 5, United States 

2 Code (commonly known as the ‘‘Congres3 sional Review Act’’); 

4 (ii) the Small Business Regulatory En5 forcement Fairness Act of 1996 (5 U.S.C. 

6 601 note); 

7 (iii) chapter 6 of title 5, United States 

8 Code (commonly known as the ‘‘Regulatory 

9 Flexibility Act’’); and 

10 (iv) chapter 35 of title 44, United 

11 States Code (commonly known as the ‘‘Pa12 perwork Reduction Act’’). 

13 SEC. 6. ANALYSIS OF THREATS AND VULNERABILITIES. 

14 (a) IN GENERAL.—Not later than February 15, 2016, 

15 the Secretary of Homeland Security shall submit to Con16 gress a report analyzing the threats and vulnerabilities fac17 ing the United States during a presidential transition, 

18 which— 

19 (1) shall identify and discuss vulnerabilities re20 lated to border security and threats related to ter21 rorism, including from weapons of mass destruction; 

22 (2) shall identify steps being taken to address the 

23 threats and vulnerabilities during a presidential 

24 transition; and 


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1 (3) may include recommendations for actions by 

2 components and agencies within the Department of 

3 Homeland Security. 

4 (b) FORM.—The report submitted under subsection (a) 

5 shall be prepared in unclassified form, but may contain a 

6 classified annex. 


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Calendar No. 166 

114TH CONGRESS 

1ST SESSION S. 1172 

[Report No. 114–94] 

A BILL 

To improve the process of presidential transition. 

JULY 27, 2015 

Reported with amendments 


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