Overview of the General Services Administration: Acquisition Services and Real Property Management
Congressional research reportSep 27, 2023
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Overview of the General Service
Administration: Acquisition Services and Real
Property Management
September 27, 2023
Congressional Research Service
https://crsreports.congress.gov
R47722
SUMMARY
Summary
The Federal Property and Administrative Services Act of 1949 (Property Act; P.L. 81-152)
established the General Services Administration (GSA) as the mandatory, government-wide
source for the procurement of goods and services and the acquisition, management, and disposal
of real property. GSA comprises two service offices: the Federal Acquisition Service (FAS),
which administers its purchasing programs, and the Public Buildings Service (PBS), which
administers its real property programs.
R47722
September 27, 2023
Dominick A. Fiorentino
Analyst in Government
Organization and
Management
Garrett Hatch
FAS facilitates the government-wide acquisition of goods and services via programs that
Specialist in American
generally fall into two categories: (1) programs to acquire goods that are made available for use
National Government
by other federal agencies; and (2) programs to pre-negotiate contracts, contract vehicles, and
agreements with vendors that federal agencies may leverage to expedite or simplify the
acquisition process. An overarching goal of these acquisition programs is to use the federal
government’s purchasing power to generate economies of scale and decrease duplication across
agencies. GSA’s purchasing programs have changed in both name and composition over time. FAS programs currently fall
within the following portfolio areas:
•
•
•
•
•
•
•
FAS-wide programs and initiatives,
The Office of Assisted Acquisition Services (AAS),
The Office of General Supplies and Services Categories (GS&S),
The Office of Information Technology Category (ITC),
The Office of Professional Services and Human Capital Categories (PSHC),
Technology Transformation Services (TTS), and
Travel, Transportation and Logistics Categories (TTL).
The mission of PBS is to provide safe and effective workspace for federal employees at the best value for taxpayers. To
fulfill its mission, PBS acquires, manages, and disposes of space on behalf of more than 100 federal agencies. PBS charges
rent to tenant agencies and deposits it into the Federal Buildings Fund (FBF). PBS also deposits into the FBF proceeds
resulting from the sale of surplus property it owns and any appropriations provided. PBS uses the funds in the FBF to pay for
its real property activities. PBS also provides an array of management services to its tenant agencies, including for the
operation and maintenance of space and repairs and alterations to space owned or leased by PBS. Agencies are required to
continually survey property under their control to identify any property that they no longer need to carry out their missions—
excess property—and to “promptly” report that property as excess to PBS.
This report provides an overview of the above and concludes with issues facing Congress, which include (1) GSA’s postpandemic space planning given changing agency workspace needs, (2) the implementation of the Federal Assets Sale and
Transfer Act of 2016 (FASTA; P.L. 114-287), (3) the proposed construction of a new headquarters for the Federal Bureau of
Investigation (FBI), and (4) TTS management of 18F and Login.gov. Agency telework policies and occupancy plans—which
determine the amount of space needed for federal employees—have been the subject of hearings and legislation in the 118th
Congress. Congress also continues to monitor implementation of FASTA—which has been viewed to have experienced
significant setbacks—and many Members have expressed interest in the process through which a site for the new FBI
headquarters facility is to be selected. Additionally, GSA was the subject of an oversight hearing in March 2023 due to a
report on misrepresentations made by TTS about the identity authentication standards offered by Login.gov.
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Overview of GSA: Acquisition Services and Real Property Management
Contents
Introduction ..................................................................................................................................... 1
Federal Acquisition Service............................................................................................................. 2
FAS-Wide Programs and Initiatives .......................................................................................... 3
Federal Supply Schedule Program ...................................................................................... 3
Emergency Acquisition Basic Ordering Agreements .......................................................... 4
Federal Strategic Sourcing Initiative................................................................................... 4
Office of Assisted Acquisition Services .................................................................................... 5
Assisted Acquisition Services ............................................................................................. 5
Office of General Supplies and Services Categories................................................................. 5
Commercial Platforms ........................................................................................................ 5
Personal Property Management .......................................................................................... 6
Requisition Programs .......................................................................................................... 7
Office of Information Technology Category ............................................................................. 8
Technology Programs ......................................................................................................... 8
Office of Professional Services and Human Capital Categories ............................................... 8
Human Capital and Training Solutions ............................................................................... 8
OASIS and OASIS Small Business .................................................................................... 8
SmartPay ............................................................................................................................. 9
Technology Transformation Services ........................................................................................ 9
Office of 18F ....................................................................................................................... 9
Presidential Innovation Fellows ........................................................................................ 10
TTS Solutions ................................................................................................................... 10
Made in America Office..................................................................................................... 11
Centers of Excellence ........................................................................................................ 11
Office of Integrated Award Environment ........................................................................... 11
Travel, Transportation and Logistics Categories ...................................................................... 11
Fleet Purchasing and Leasing ........................................................................................... 12
Fleet Electrification........................................................................................................... 12
Public Buildings Service ............................................................................................................... 12
Federal Building Fund............................................................................................................. 13
Acquisition of Real Property ................................................................................................... 14
Building Management ............................................................................................................. 15
Disposal of Excess and Surplus Real Property ....................................................................... 15
Issues Facing Congress ................................................................................................................. 16
Post-Pandemic Space Planning ............................................................................................... 17
Implementation of the Federal Assets Sale and Transfer Act .................................................. 18
FBI Headquarters .................................................................................................................... 19
Oversight of TTS Management of 18F and Login.gov ........................................................... 21
Login.gov ................................................................................................................................ 22
Figures
Figure 1. GSA Organizational Chart ............................................................................................... 1
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Overview of GSA: Acquisition Services and Real Property Management
Tables
Table 1. Selected GSA Purchasing Programs and Initiatives .......................................................... 3
Table 2. FY2023 Limitations on the Availability of Revenue ....................................................... 13
Table 3. Weight Assigned to Site Selection Criteria, Out of 100 Points ........................................ 20
Contacts
Author Information........................................................................................................................ 22
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Introduction
The Federal Property and Administrative Services Act of 1949 (Property Act)1 established the
General Services Administration (GSA) as the mandatory, government-wide source for the
procurement of goods and services and the acquisition, management, and disposal of real
property.2 It employs approximately 12,600 people and has a budget of approximately $16
billion.3 As depicted in Figure 1, GSA groups its offices into four categories: (1) services, (2)
independent offices, (3) regional offices, and (4) staff offices.
Figure 1. GSA Organizational Chart
Source: GSA, “GSA Organization,” https://www.gsa.gov/about-us/gsa-organization.
GSA’s two service offices are the focus of this report: the Federal Acquisition Service (FAS),
which administers its purchasing programs, and the Public Buildings Service (PBS), which
administers its real property programs.
There are two independent offices at GSA: the Office of Inspector General (OIG), which
investigates GSA’s programs and activities to recommend corrections to management and
administrative deficiencies, and the Civilian Board of Contract Appeals, a tribunal that resolves
disputes between government contractors and federal agencies.
GSA’s 11 regional offices assist federal agencies located around the country with the procurement
of goods and services and the acquisition and management of real property. GSA’s 12 staff offices
generally handle internal administrative duties, although the Office of Government-wide Policy,
in consultation with FAS and PBS, promulgates procurement and real property policies that apply
to other federal agencies.
1 The Federal Property and Administrative Services Act of 1949 (P.L. 81-152), July 1, 1949 (63 Stat. 377).
2 40 U.S.C. §101. Some agencies possess the independent statutory authority to perform specific real property functions
themselves rather than work through GSA.
3 GSA, “Office of the Administrator Overview,” https://www.gsa.gov/about-us/organization/office-of-theadministrator-overview.
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Federal Acquisition Service4
FAS facilitates the government-wide acquisition of goods and services via programs that
generally fall into two categories: (1) programs to acquire goods that are made available for use
by other federal agencies and (2) programs to pre-negotiate contracts, contract vehicles, and
agreements with vendors that federal agencies may leverage to expedite or simplify the
acquisition process.5 An overarching goal of these acquisition programs is to use the federal
government’s purchasing power to generate economies of scale and decrease duplication across
agencies.6
Federal Acquisition Regulation (FAR) Definition of Acquisition
“Acquisition means the acquiring by contract with appropriated funds of supplies or services (including
construction) by and for the use of the Federal Government through purchase or lease, whether the supplies or
services are already in existence or must be created, developed, demonstrated, and evaluated. Acquisition begins
at the point when agency needs are established and includes the description of requirements to satisfy agency
needs, solicitation and selection of sources, award of contracts, contract financing, contract performance, contract
administration, and those technical and management functions directly related to the process of fulfilling agency
needs by contract.”7
According to GSA, FAS seeks to deliver “products and services across government at the best
value possible.”8 FAS does this by establishing programs and services that (1) assist agencies in
their acquisition activities and (2) achieve administrative cost savings throughout the federal
government. Furthermore, FAS’s purchasing programs seek to increase competition for federal
contracts and reduce duplication of acquisition programs across federal agencies.9 The majority of
FAS’s operations are supported by the Acquisition Services Fund (ASF). The ASF is funded via
fees charged to federal agencies for services rendered and goods provided.10
Table 1 aligns each purchasing program listed on GSA’s website to its associated FAS portfolio.
Some FAS portfolios do not directly support GSA’s purchasing programs and were excluded from
the table. Additionally, three of the purchasing programs are supported by FAS but are not tied to
a single portfolio. For this reason, CRS has labeled them as “FAS-wide.” The FAS portfolios and
programs listed in the table serve as an organizational framework for this report.
4 This report does not contain a comprehensive list of all GSA programs and activities related to the acquisition of
goods and services. GSA contains many programs and mission support offices that may directly or indirectly support
federal agencies in their acquisition activities. This report focuses on GSA’s purchasing programs within FAS, which
more directly support agency acquisition activities.
5 In addition to executive branch agencies, other federal agencies, government corporations, tribal governments, and
other organizations are authorized to use GSA sources of supply and services. See GSA, Directives Library, “4800.2I
OGP Eligibility to Use GSA Sources of Supply and Services,” https://www.gsa.gov/directive/eligibility-to-use-gsasources-of-supply-and-services.
6 GSA, FY2024 Congressional Justification, March 13, 2023, p. GSA-6, https://www.gsa.gov/system/files/
GSA_FY_2024_Congressional_Justification_Final-1.pdf.
7 48 C.F.R. §2.101. Generally, it is common practice to refer to the Federal Acquisition Regulation (FAR) (e.g., “FAR
6.302,” or “Subpart 15.3 of the FAR”) in conversation and text yet cite the Code of Federal Regulations (e.g., 48
C.F.R. §42.302) when identifying the FAR as the source of material. The FAR is available at
https://www.acquisition.gov/sites/default/files/current/far/pdf/FAR.pdf.
8 GSA, “Federal Acquisition Service,” https://www.gsa.gov/about-us/organization/federal-acquisition-service.
9 GSA, FY2024 Congressional Justification, p. ASF-3.
10 GSA, FY2024 Congressional Justification, p. ASF-2. The ASF is authorized by Title 40, Section 321, of the U.S.
Code, which requires GSA to establish rates to be charged to agencies receiving services that (1) recover costs and (2)
provide for the cost and capital requirements of the ASF.
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Table 1. Selected GSA Purchasing Programs and Initiatives
FAS Portfolio Area and Associated Programs
FAS Portfolio
Purchasing Program(s) and Initiatives
FAS-Wide
Federal Supply Schedule Program
Emergency Acquisition Basic Ordering Agreements
Federal Strategic Supply Initiative
Office of Assisted Acquisition Services
Assisted Acquisition Services
Office of General Supplies and Services Categories
Commercial Platforms Initiative
Personal Property Management
Requisition Services
Office of Information Technology Category
Technology Programs
Office of Professional Services and Human Capital
Categories
HCaTS and HCaTS B
OASIS and OASIS SB
SmartPay
Technology Transformation Services
Office of 18F
Presidential Innovation Fellows
TTS Solutions
Made in America Office
Centers of Excellence
Office of Integrated Award Management
Travel, Transportation and Logistics Categories
Fleet Purchasing and Leasing
Fleet Electrification
Source: CRS analysis of GSA website and GSA Congressional Budget Justification. See GSA, FY2024
Congressional Justification, March 13, 2023, https://www.gsa.gov/system/files/
GSA_FY_2024_Congressional_Justification_Final-1.pdf.
Notes: This table does not represent a comprehensive list of all FAS portfolio areas or GSA purchasing
programs.
FAS-Wide Programs and Initiatives
The following acquisition programs and initiatives are managed within FAS but are not aligned
with a single portfolio.
Federal Supply Schedule Program
GSA maintains a supply schedule, which is a list of goods and/or services provided by multiple
GSA-selected vendors at varying prices. This schedule is known as either the Federal Supply
Schedule or a multiple award schedule. Using competitive procedures, GSA awards indefinitedelivery-indefinite-quantity (IDIQ) contracts to firms that are to provide goods or services
through the schedule.11 Agencies may acquire commercial goods and services listed on the
schedule in varying quantities at the price stated on the schedule.12 The Federal Supply Schedule,
therefore, provides a simplified process for agencies to acquire goods and services while also
obtaining volume discounts. When an agency pays a vendor for goods or services listed on the
11 IDIQ contracts provide for an indefinite quantity of supplies or services during a fixed period.
12 48 C.F.R. §38.101(a).
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schedule, the vendor remits a percentage of the sale, currently 0.75%, to GSA.13 This fee, known
as the Industrial Funding Fee, reimburses GSA for the costs of operating the Federal Supply
Schedule Program.14
The process for getting on a schedule is similar to that for obtaining a government contract: GSA
issues a solicitation for goods or services, companies submit offers in response, and then GSA
evaluates the offers and awards contracts to multiple vendors. GSA provides information about its
schedule, including guidance for how to get on a schedule, on its website.15 Schedule solicitations
are posted on the System for Award Management (SAM.gov).16 SAM.gov is a website,
administered by GSA, used for several procurement-related functions, including by:
•
•
•
entities seeking to compete for government contracts,
agencies posting contract opportunities, and
agency personnel and others using contract award data in SAM for analysis.17
Emergency Acquisition Basic Ordering Agreements
GSA has entered into agreements with agencies, such as the Federal Emergency Management
Agency, to assist in the procurement of goods and services in preparation for emergencies.18 To
support these agencies, GSA has established Basic Ordering Agreements (BOAs) with qualified
vendors offering emergency supplies and services. BOAs are not contracts but written
understandings between contracting officers and vendors. BOAs contain terms and clauses
applying to future contracts, descriptions of goods or services to be provided, and pricing
methods.19 By establishing BOAs, GSA may facilitate the expedited procurement of needed
services and supplies by agencies during an emergency.
Federal Strategic Sourcing Initiative
The goal of the Federal Strategic Sourcing Initiative (FSSI) is to strategically source goods and
services used across federal agencies to achieve economies of scale.20 Currently, GSA has two
FSSI solutions that support agency acquisitions:
13 GSA, “General Services Administration Acquisition Regulation; Information Collection; Industrial Funding Fee and
Sales Reporting,” 83 Federal Register 4337-4339, January 13, 2017.
14 48 C.F.R §552.238-80.
15 An overview of GSA’s schedules and links to other detailed information is available at GSA, “GSA Schedules,”
https://www.gsa.gov/buying-selling/purchasing-programs/gsa-schedules. Guidance for getting on a GSA schedule is
available at GSA, “Selling to the Government,” https://www.gsa.gov/buying-selling/purchasing-programs/gsaschedules/selling-to-the-government.
16 GSA’s solicitation is available at GSA, “Multiple Award Schedule,” https://sam.gov/opp/
7beca3dcd7c5460b882303175c93e767/view.
17 GSA, “About SAM.gov,” https://www.gsa.gov/about-us/organization/federal-acquisition-service/office-of-systemsmanagement/integrated-award-environment-iae/about-samgov.
18 GSA, Purchasing Programs, “Emergency Acquisition Basic Ordering Agreements,” https://www.gsa.gov/
governmentwide-initiatives/emergency-response/emergency-acquisition-basic-ordering-agreements. Emergency is
defined in the FAR at Title 48, Section 2.101, of the Code of Federal Regulations.
19 48 C.F.R. §16.703.
20 GSA, Purchasing Programs, “Federal Strategic Sourcing Initiative (FSSI),” https://www.gsa.gov/buy-through-us/
purchasing-programs/federal-strategic-sourcing-initiative-fssi.
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1. Wireless Mobility Solutions offers agencies a selection of GSA-selected vendors
providing wireless goods and services. These goods and services are available for
purchase by agencies via the Federal Supply Schedule.21
2. Through the Office Supplies FSSI, GSA offers agencies purchasing channels that
allow them to achieve cost savings when purchasing office supplies.22
Office of Assisted Acquisition Services
The GSA Office of Assisted Acquisition Services (AAS) offers customized acquisition, project,
and financial management support services to federal agencies on a fee-for-service basis.23
Assisted Acquisition Services
Agencies may contract AAS to undertake certain acquisition management services on their
behalf, allowing the agencies to focus on their mission-critical activities. AAS supports federal
clients out of 12 Client Support Centers (CSCs) based in the 11 GSA regional offices as well as
GSA’s central office.24 Additionally, two CSCs provide assisted acquisition services for Small
Business Innovation Research (SBIR) Phases I and II, and four CSCs provide assistance for SBIR
Phase III.25 SBIR is a competitive program that encourages domestic small businesses to engage
in federal research and development.26
Office of General Supplies and Services Categories
The Office of General Supplies and Services Categories uses the federal government’s purchasing
power to realize economies of scale in the procurement of non-IT goods and services. Purchasing
programs are available across the government, avoiding duplicative contract vehicles for
commercially available goods and services.27
Commercial Platforms
Section 846 of the FY2018 National Defense Authorization Act required GSA to establish a
program to procure commercial products through commercial e-commerce portals.28 The
Commercial Platforms program currently provides “SmartPay” cardholders access to three online
platforms: Amazon Business, Fisher Scientific, and Overstock Government.29
21 GSA, “Wireless Mobility Solutions,” https://www.gsa.gov/technology/technology-purchasing-programs/
telecommunications-and-network-services/wireless-mobility-solutions-wms.
22 GSA, “Federal Strategic Sourcing Initiative for Office Supplies Fourth Generation (FSSI OS4),”
https://www.gsa.gov/buy-through-us/purchasing-programs/federal-strategic-sourcing-initiative/federal-strategicsourcing-initiative-for-office-supplies-fourth-generation-fssi-os4.
23 GSA, Assisted Acquisition Services, “About Us,” https://aas.gsa.gov/aboutus/.
24 GSA, FY2023 Congressional Justification, p. ASF-24.
25 GSA, FY2023 Congressional Justification, p. ASF-24.
26 Small Business Administration, Small Business Innovation Research, “About,” https://www.sbir.gov/about.
27 GSA, FY2023 Congressional Justification, p. ASF-25.
28 The National Defense Authorization Act for Fiscal Year 2018 (P.L. 115-91), December 12, 2017, 131 Stat. 1483.
29 GSA, Purchasing Programs, “Awarded Online Platforms,” https://www.gsa.gov/buy-through-us/purchasingprograms/commercial-platforms/awarded-online-platforms.
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Personal Property Management
The Office of Personal Property Management helps agencies dispose of unneeded personal
property, such as furniture, office supplies, equipment, aircraft, and passenger vehicles, among
other items.30
Federal law requires agencies to continually survey their personal property inventories and
identify “excess” items that they no longer need.31 When an agency identifies excess property, it
must first offer the property to other federal agencies. In an effort to maximize the use of personal
property purchased with federal funds and minimize expenditures, GSA’s regulations direct
federal agencies, to the extent practicable, to “fill requirements for personal property … by
obtaining excess property from other federal agencies in lieu of new procurements.”32 As
discussed below, federal agencies may acquire excess federal property through a direct transfer or
through the government-wide screening process.
Federal agencies have the option to transfer an item directly to another federal agency, provided
the item had an acquisition cost of less than $10,000.33 Excess property with an acquisition cost
of $10,000 or more may be transferred directly to another federal agency with verbal approval
from the appropriate GSA regional office.34 Generally, direct transfers are made at no charge for
the property itself, but the requesting agency is responsible for transportation and shipping
costs.35 Agencies may subsequently transfer excess personal property to their contractors,
grantees, or cooperative agreement recipients.36 Agencies may also perform direct transfers of
computers or peripheral tools (e.g., modems and printers) to schools or educational nonprofits
through the Computers for Learning Program.37
If an agency does not perform a direct transfer of excess personal property, it must promptly
report the property to GSA.38 Excess property may be reported online through the GSAXcess
system,39 electronic batch, or hard copy.40 Once excess property is reported to GSA, it undergoes
a 21-day screening process, during which the property may be viewed online (if it was entered
into GSAXcess by the reporting agency) or inspected onsite (at the agency).41 During the 21-day
period, excess personal property may be transferred to other federal agencies as well as to the
30 GSA, “Personal Property Management for Federal Agencies,” https://www.gsa.gov/buy-through-us/government-
property-for-sale-or-disposal/personal-property-for-reuse-sale/personal-property-management-for-federal-agencies.
31 40 U.S.C. §524(a)(2).
32 41 C.F.R. §102-36.35.
33 41 C.F.R. §102-36.145.
34 41 C.F.R. §102-36.145.
35 41 C.F.R. §102-36.75(a).
36 41 C.F.R. §102-36.35.
37 The Computers for Learning Program (15 U.S.C. §3710(i)) was established pursuant to Executive Order 12999,
“Educational Technology: Ensuring Opportunities for All Children in the Next Century,” 61 Federal Register 17227,
April 19, 1996, https://www.govinfo.gov/content/pkg/WCPD-1996-04-22/pdf/WCPD-1996-04-22-Pg677.pdf.
38 40 U.S.C. §524(a).
39 GSAXcess is GSA’s online system for reporting, searching, and selecting personal property. It may be accessed at
https://gsaxcess.gov/.
40 GSA, “Personal Property for Sale and Reuse: Federal Screening,” at https://www.gsa.gov/buying-selling/
government-property-for-sale-or-disposal/personal-property-for-reuse-sale/for-federal-agencies/federal-screening.
41 GSA, “Personal Property for Sale and Reuse.”
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Senate, the House of Representatives, the Architect of the Capitol, the District of Columbia
government, and certain mixed-ownership government corporations.42
If no federal agency requests the excess property, then GSA declares it “surplus” and has five
days to donate it at no charge to eligible recipients. Such recipients include state and local
governments; municipal agencies; and nonprofits that provide support for education, public
health, or veterans groups.43 The surplus personal property is not transferred directly to the
recipients. Rather, each state has a State Agency for Surplus Property,44 which receives the
property and distributes it to qualified agencies and organizations.
Surplus personal property that is not donated within the five-day period may be sold to the
general public.45 GSA makes surplus property for sale available on its public auction website46
and may also sell property through live auctions, fixed price or negotiated sales, sealed bids, or
spot bids.47 Generally, proceeds from the sale of surplus property are deposited into the U.S.
Treasury, less the cost of disposition.48
Items that do not sell may be recycled, abandoned,49 or destroyed if they have no value or the
estimated cost of their continued care and handling exceeds the estimated proceeds from sale.50
Requisition Programs
Requisition programs allow agencies to purchase a variety of products directly from GSA.51 GSA
acquires the products in its inventory via competitive procurement, and agencies place orders
with GSA for government-to-government transfers. One such requisition program, Global Supply,
allows military and civilian agencies to order a variety of janitorial, maintenance, and office
supplies from GSA for worldwide delivery.52
42 41 C.F.R. §102-36.60.
43 40 U.S.C. §549.
44 A list of such agencies may be found at https://www.gsa.gov/buying-selling/government-property-for-sale-or-
disposal/personal-property-for-reuse-sale/for-state-agencies-and-public-orgs/state-agencies-for-surplus-property-saspcontacts.
45 41 C.F.R. §102-38.
46 GSA Auctions, https://gsaauctions.gov/gsaauctions/gsaauctions/?gclid=
EAIaIQobChMIterWi7Ww4wIVD9bACh28XQ7yEAAYASAAEgLQpfD_BwE.
47 GSA, Personal Property Disposal Guide, pp. 24-26, https://www.gsa.gov/cdnstatic/
PersonalProperty_DisposalGuide_2011.pdf.
48 U.S. Government Accountability Office (GAO), Federal Personal Property: Opportunities Exist to Improve
Identification of Unneeded Property for Disposal, GAO-18-257, February 2018, p. 33, https://www.gao.gov/assets/gao18-257.pdf.
49 Abandonment typically refers to a federal agency relinquishing all rights to personal property and leaving it at a
contractor’s premises as described in Section 45.603 of the FAR at https://www.acquisition.gov/content/45603abandonment-or-destruction-personal-property.
50 41 C.F.R. §102-37.320.
51 GSA, Purchasing Programs, “Requisition Programs Overview,” https://www.gsa.gov/buy-through-us/purchasingprograms/requisition-programs-overview?topnav=.
52 GSA, Purchasing Programs, “GSA Global Supply FAQs,” https://www.gsa.gov/buy-through-us/purchasingprograms/requisition-programs/gsa-global-supply/gsa-global-supply-faqs.
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Office of Information Technology Category
The Office of Information Technology Category (ITC) provides agencies with a variety of precompeted contracts offering IT and telecommunications products and services.53
Technology Programs
Within ITC, GSA offers several purchasing programs to assist agencies in procuring IT goods and
services, including the following:54
•
•
Government-wide acquisition contracts are “pre-competed, multiple award,
IDIQ contracts” that agencies can use to acquire IT services more cost effectively
while ensuring compliance with applicable regulations.55 GSA provides agencies
access to these contracts for IT services including systems design, software
engineering, information assurance, and enterprise architecture solutions.
Software blanket purchase agreements are agreements between government
buyers and contractors to fill repetitive needs for supplies or services.56 They
offer pre-negotiated terms and conditions for commercial off-the-shelf software
to reduce agency risk and project costs.57
Office of Professional Services and Human Capital Categories
The Office of Professional Services and Human Capital Categories manages non-IT professional
and human capital services contract programs.58 It manages Human Capital and Training
Solutions, One Acquisition Solution for Integrated Services, and SmartPay.
Human Capital and Training Solutions
The Human Capital and Training Solutions (HCaTS) program consists of three IDIQ governmentwide contract vehicles—HCaTS-U (Unrestricted), HCaTS-SB (Small Business Set-Aside), and
HCaTS-8a (Small Disadvantaged Businesses)—to assist agencies in procuring human capital
management and training services.59 HCaTS-SB and HCaTS-8a create opportunities for agencies
to meet their small business contracting goals.60
OASIS and OASIS Small Business
One Acquisition Solution for Integrated Services (OASIS) comprises several government-wide,
multiple-award IDIQ contracts for professional services, including program management
53 GSA, FY2023 Congressional Justification, p. ASF-29.
54 GSA, “Technology Purchasing Programs,” https://www.gsa.gov/technology/technology-programs?topnav=buy.
55 GSA, “Governmentwide Acquisition Contracts,” https://www.gsa.gov/technology/technology-purchasing-programs/
governmentwide-acquisition-contracts-gwacs.
56 48 C.F.R. §13.303.
57 GSA, “SmartBuy Blanket Purchase Agreements,” https://www.gsa.gov/technology/technology-purchasing-programs/
smartbuy-blanket-purchase-agreements. Commercial off-the-shelf software refers to products that are commercially
available and can be used without modification or customization (e.g., Microsoft Office).
58 GSA, FY2023 Congressional Justification, p. ASF-34.
59 GSA, “Human Capital and Training Solutions (HCATS),” https://www.gsa.gov/buy-through-us/products-services/
human-capital/human-capital-and-training-solutions-hcats.
60 GSA, FY2023 Congressional Justification, p. ASF-36.
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services, management consulting services, logistics services, engineering services, scientific
services, and financial services.61
SmartPay
The GSA SmartPay program is a government charge card and commercial payment program that
allows authorized government employees to make purchases in support of their agencies’
missions.62 The SmartPay purchase program is the preferred method of payment for federal
employees to make official government purchases for supplies, goods, and services under the
micro-purchase threshold.63 Additionally, federal employees use SmartPay to purchase airline,
rail, and bus tickets as well as other travel-related expenses.64
Technology Transformation Services
Technology Transformation Services (TTS) assists agencies with building, buying, and sharing
technology.65 TTS’s operations are funded by appropriations, reimbursable work, the ASF, and
agency contributions to the Federal Citizen Services Fund (FCSF).66 The ASF-funded TTS
initiatives assist agencies by “building, providing, and buying technology applications, platforms,
processes, personnel, and software solutions.”67 FCSF-funded TTS initiatives help external users
such as individuals, businesses, and other governments “interact with federal information,
services, benefits, and business opportunities.”68 TTS manages the Office of 18F, the Presidential
Innovation Fellows Program, TTS Solutions, the Made in America Office, Centers of Excellence,
and the Office of Integrated Award Environment.
Office of 18F
The Office of 18F “collaborates with other agencies to fix technical problems, build products, and
improve how government serves the public through technology.”69 Congress does not annually
appropriate funds to 18F. Instead, 18F charges partner agencies for services rendered. Charges are
recovered under ASF reimbursement authority and Economy Act reimbursement authority.70
61 GSA, “OASIS and OASIS Small Business,” https://www.gsa.gov/buy-through-us/products-services/professional-
services/buy-services/oasis-and-oasis-small-business.
62 GSA, GSA SmartPay, “About GSA SmartPay,” https://smartpay.gsa.gov/content/about-gsa-smartpay.
63 48 C.F.R. §13.201(b). The current micro-purchase threshold is $10,000 but may be higher or lower for certain
categories of purchases. See 48 C.F.R. §2.101.
64 GSA, GSA SmartPay, “What Is the GSA SmartPay Travel Account?,” https://smartpay.gsa.gov/content/travelprogram-overview-account-holders.
65 GSA, “Technology Transformation Services,” https://www.gsa.gov/about-us/organization/federal-acquisitionservice/technology-transformation-services.
66 GSA, FY2023 Congressional Justification, p. ASF-30. Title 40, Section 323, of the U.S. Code established the FCSF
within GSA “for the purpose of disseminating federal government information to the public and for other related
purposes.”
67 GSA, FY2023 Congressional Justification, p. ASF-30.
68 GSA, FY2023 Congressional Justification, p. ASF-30.
69 18F, “About,” https://18f.gsa.gov/about/. The 18F name is derived from the address of GSA headquarters in
Washington, DC: 1800 F Street NW.
70 18F, “About.”
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Presidential Innovation Fellows
The Presidential Innovation Fellows (PIF) program embeds private sector technologists in federal
agencies.71 Fellows selected to participate in the program serve for 12 months.72 PIF operates
under the Economy Act, whereby agencies receiving fellows enter into interagency agreements to
reimburse GSA for the costs to operate the program.73
TTS Solutions
TTS Solutions works to modernize citizen interactions with the federal government.74 It uses
technology and government digital services to “improve transparency, security, and the efficiency
of federal operations while also increasing citizen participation.”75 Since 2019, TTS Solutions has
become responsible for maintaining several projects that were initially created by 18F, including
Login.gov, Cloud.gov, and Cloud.gov Pages.76
Login.gov
Login.gov is “a single sign-on solution for government websites that will enable citizens to access
public services across agencies with the same username and password.”77 Further, Login.gov
aims to allow users to “securely sign in to participating government websites and securely verify
their identity.”78 Login.gov provides shared authentication and identity verification services for
multiple federal organizations and is subject to implementation guidance from the Office of
Management and Budget (OMB) and the National Institute of Standards and Technology
(NIST).79
Cloud.gov and Cloud.gov Pages
Cloud.gov is a cloud-based platform-as-a-service.80 Cloud.gov was created to meet the needs of
federal customers, complies with relevant security regulations, and maintains a FedRAMP Joint
Authorization Board Provisional Authority to Operate.81 Cloud.gov Pages (originally called
71 GSA, FY2023 Congressional Justification, p. ASF-31.
72 GSA, “The Presidential Innovation Fellows,” https://www.gsa.gov/about-us/organization/federal-acquisition-service/
technology-transformation-services/the-presidential-innovation-fellows.
73 GSA, FY2023 Congressional Justification, p. ASF-31.
74 GSA, TTS Handbook, “A Brief History of TTS Solutions,” https://handbook.tts.gsa.gov/office-of-solutions/history/.
75 GSA, “TTS Solutions,” https://www.gsa.gov/about-us/organization/federal-acquisition-service/technologytransformation-services/tts-solutions.
76 GSA, TTS Handbook, “A Brief History of TTS Solutions.”
77 Login.gov, “What Is Login.gov?,” https://www.login.gov/what-is-login/.
78 Login.gov, “About Us,” https://www.login.gov/about-us/.
79 See CRS In Focus IF12395, Login.gov: Administration and Identity Authentication, by Dominick A. Fiorentino,
Natalie R. Ortiz, and Meghan M. Stuessy.
80 GSA, FY2023 Congressional Justification, p. ASF-32. NIST defines platform-as-a-service as the “capability
provided to the consumer is to deploy onto the cloud infrastructure consumer-created or acquired applications created
using programming languages, libraries, services, and tools supported by the provider. The consumer does not manage
or control the underlying cloud infrastructure including network, servers, operating systems, or storage, but has control
over the deployed applications and possibly configuration settings for the application-hosting environment.” See NIST,
Computer Security Resource Center, “Glossary,” https://csrc.nist.gov/glossary/term/platform_as_a_service.
81 Cloud.gov, “What Is Cloud.gov,?” https://cloud.gov/docs/overview/what-is-cloudgov/. FedRAMP, established in
2011, is a risk-based approach for the adoption and use of cloud services by the federal government. FedRAMP was
(continued...)
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Federalist) is a publishing platform for federal government websites that utilizes Cloud.gov
infrastructure.82
Made in America Office
Various laws and regulations require federal agencies to procure goods from American suppliers
and manufacturers.83 Under certain circumstances—namely if a needed product is not made in the
United States in sufficient and reasonably available commercial quantities or at a reasonable
cost—agencies may obtain waivers or exceptions from these requirements. The Made in America
Office (MIAO) reviews these waivers to ensure that they are applied consistently across agencies.
Additionally, MadeinAmerica.gov, a website maintained by the MIAO, serves as a repository of
historical and current waivers to domestic content laws and regulations.84 The goal of this
repository is to provide information about opportunities for domestic manufacturers to supply
goods to the federal government.85
Centers of Excellence
GSA’s Centers of Excellence is a fee-for-service consulting service that assists agencies with
enterprise-wide modernization efforts.86 The centers currently focus on six functional areas:
artificial intelligence, cloud adoption, contact center, customer experience, data analytics, and
infrastructure optimization.87
Office of Integrated Award Environment
The Integrated Award Environment manages a suite of online systems that support the federal
awards lifecycle, including SAM.gov.88 Those systems are used for registering to do business
with the federal government, listing contract opportunities, reporting performance, analyzing
contract data, and other award-related activities.89
Travel, Transportation and Logistics Categories
The Travel, Transportation and Logistics Categories portfolio provides agencies with a variety of
travel, transportation, and relocation services; motor vehicle acquisition; and fleet management
services.90
authorized by the FedRAMP Authorization Act. The law, included at Title 44, Section 101 note, of the U.S. Code,
comprised Subtitle C (136 Stat. 3449) of P.L. 117-263 (136 Stat. 2395).
82 GSA, FY2023 Congressional Justification, p. ASF-32.
83 See CRS Report R46748, The Buy American Act and Other Federal Procurement Domestic Content Restrictions, by
David H. Carpenter and Brandon J. Murrill.
84 GSA, FY2023 Congressional Justification, p. ASF-32.
85 MIAO, “About,” https://www.madeinamerica.gov/about/.
86 GSA, “The Centers of Excellence,” https://www.gsa.gov/about-us/organization/federal-acquisition-service/
technology-transformation-services/the-centers-of-excellence. The centers were established by the Information
Technology Modernization Centers of Excellence Program Act (P.L. 116-194; 134 Stat. 981; 40 U.S.C. §101 note and
40 U.S.C. §11301 note).
87 GSA, FY2023 Congressional Justification, p. ASF-32.
88 GSA, FY2023 Congressional Justification, p. ASF-34.
89 GSA, “Integrated Award Environment,” https:// gsa.gov/about-us/organization/federal-acquisitionservice/technology-transformation-services/integrated-award-environment-iae.
90 GSA, FY2023 Congressional Justification, p. ASF-42.
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Fleet Purchasing and Leasing
Executive agencies are required to use GSA sources when purchasing non-tactical vehicles.91
Centralizing the purchasing of vehicles in GSA allows the federal government to negotiate lower
prices than agencies could achieve separately. In FY2020, the government owned or leased
610,000 non-tactical vehicles, which traveled more than 4 billion miles and consumed 360
million gallons of gas.92 Federal agencies procure approximately 50,000 vehicles through the
GSA fleet purchasing program annually.93 An agency can place a requisition for a vehicle via the
GSA’s AutoChoice website.94 GSA also provides full-service leases for more than 220,000 nontactical vehicles to federal agencies and other eligible customers annually.95
Fleet Electrification
Historically, federal agencies have used their discretion in determining the numbers and types of
vehicles needed to meet their missions and whether to acquire the vehicles by lease or purchase.96
In 2021, with the issuance of Executive Order (E.O.) 14057, “Catalyzing Clean Energy Industries
and Jobs Through Federal Sustainability,” agencies were mandated to transition to zero-emissions
fleets.97 E.O. 14057 requires agencies to achieve 100% zero-emission vehicle acquisitions by
2035, including 100% zero-emissions light-duty vehicle acquisitions by 2027.98 The government
currently owns or leases approximately 380,000 light-duty vehicles, of which 1,579 are classified
as zero-emission.99 As these vehicles reach the end of their useful lives, agencies will need to
replace them in accordance with the zero-emissions guidance from E.O. 14057.
Public Buildings Service
The mission of the Public Buildings Service (PBS) is to provide safe and effective workspace for
federal employees at the best value for taxpayers.100 To fulfill its mission, PBS acquires, manages,
and disposes of space on behalf of more than 100 federal agencies.101 These buildings house more
than 1 million federal employees, which is about half of the civilian workforce.102
91 41 C.F.R. §101-26.501.
92 GAO, Federal Vehicle Fleets: Observations on the Transition to Electric Vehicles, GAO-23-105635, October 2022,
p. 2, https://www.gao.gov/assets/gao-23-105635.pdf.
93 GSA, FY2023 Congressional Justification, p. ASF-43.
94 GSA, “Vehicle Purchasing,” https://www.gsa.gov/buy-through-us/products-services/transportation-logistics-services/
fleet-management/vehicle-purchasing.
95 GSA, FY2023 Congressional Justification, p. ASF-44.
96 GAO, Federal Vehicle Fleets, pp. 2-4.
97 E.O. 14057, “Catalyzing Clean Energy Industries and Jobs Through Federal Sustainability,” 86 Federal Register
70935, December 8, 2021, https://www.whitehouse.gov/briefing-room/presidential-actions/2021/12/08/executiveorder-on-catalyzing-clean-energy-industries-and-jobs-through-federal-sustainability/.
98 E.O. 14057, §102(ii). Light-duty vehicle is defined as a vehicle with a gross vehicle weight rating of 8,500 pounds or
less. OMB, Catalyzing Clean Energy Industries and Jobs Through Federal Sustainability, M-22-06, December 8, 2021,
https://www.whitehouse.gov/wp-content/uploads/2021/12/M-22-06.pdf.
99 GAO, Federal Vehicle Fleets, p. 2.
100 GSA, FY2023 Congressional Justification, p. FBF-3.
101 GSA, “Realty Services Overview,” https://www.gsa.gov/real-estate/realty-services-overview.
102 GSA, “Realty Services Overview.”
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Currently, PBS owns or leases 365 million square feet in more than 8,300 buildings.103 These
buildings vary in purpose, depending on the mission and immediate needs of the tenant. For
example, PBS’s inventory includes courthouses for the judiciary, land ports of entry for Customs
and Border Protection, laboratories for the Food and Drug Administration, and general office
space for many agencies.104
Federal Building Fund
PBS charges rent to tenant agencies and deposits it into the Federal Buildings Fund (FBF). PBS
also deposits into the FBF proceeds resulting from the sale of surplus property it owns and any
appropriations provided. PBS uses the funds in the FBF to pay for its real property activities.
GSA does not have the authority to spend the FBF’s full balance each year. Congress, through the
appropriations process, sets annual limits on the amount of funds that may be expended from the
FBF, known as limitations on the availability of revenue, for each account within the FBF:
•
•
•
•
Construction and Acquisition funds the purchase or construction of new
facilities as well as major extensions to existing buildings.
Repairs and Alterations funds repairs and alterations of existing buildings,
including the associated design and construction services.
Rental of Space funds leases with privately owned space or buildings on behalf
of other federal agencies.
Building Operations funds day-to-day building services, such as cleaning,
utilities, and maintenance.105
If Congress does not set GSA’s limitations equal to revenue—providing “zero balance
authority”—then any unexpended funds are added to the FBF’s balance and carried forward to the
following fiscal year and are available to be appropriated.
Table 2 shows the limitations on the availability of revenue for the FBF in FY2023.
Table 2. FY2023 Limitations on the Availability of Revenue
FBF Account
Amount of Limitation
Construction and Acquisition
$807,809,000
Repairs and Alterations
$662,280,000
Rental of Space
$5,561,680,000
Building Operating Costs
$2,981,381,000
Total Limitations
$10,013,150,000
Rental Income to Fund
$10,488,857,000
FBF Total
(475,707,000)
Source: P.L. 117-103.
As shown in Table 2, the FBF is scheduled to receive rental payments from agencies totaling
$10.489 billion in FY2023, and Congress provided limitations totaling $10.013 billion. The FBF
103 GSA, “Realty Services Overview.”
104 GSA, “GSA Properties,” https://www.gsa.gov/real-estate/gsa-properties.
105 Additional accounts may exist in some years if appropriators provide funding for non-recurring expenditures, such
as emergency funding to repair buildings after a natural disaster.
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therefore received $476 million more than it was allowed to obligate. This amount is recorded as
a negative but represents a net gain to the FBF.
Acquisition of Real Property
When a federal agency needs space, it contacts the appropriate GSA regional office to begin the
acquisition process. GSA meets with the agency to define its requirements, such as the delineated
area within which the property must be located; number of employees; amount and type of space
(e.g., office, courthouse, other); parking; special security considerations; and proximity to public
transportation.106
GSA then develops an initial housing plan called a feasibility study.107 GSA first assembles a
feasibility study team consisting of GSA and agency staff to confirm the project’s requirements.
The team then selects a planner to help develop and evaluate housing alternatives that meet those
requirements. Alternatives may include alteration, new construction, lease, purchase, and other
options. From the viable alternatives, GSA recommends a preferred alternative and, with the
agency’s approval, further develops an acquisition plan for it. The feasibility study provides an
implementation strategy for the preferred alternative, including a project schedule and a cost
estimate.
When the feasibility study is complete, GSA’s Office of Real Property Asset Management
prepares and submits a design prospectus to Congress. As required by Title 40, Section 3307 of
the U.S. Code, GSA must submit a prospectus to two committees—the Senate Committee on
Environment and Public Works (EPW) and the House Committee on Transportation and
Infrastructure (T&I)—for approval when a real property proposal exceeds a certain threshold. For
FY2023 the prospectus threshold for leases and construction and alteration projects in federally
owned buildings is $3.613 million, and the threshold for alterations of leased building space is
$1.8065 million.108 EPW and T&I must each pass a resolution approving the project’s prospectus
if the project is to be considered for appropriations.109 The resolutions need to pass only at the
committee level and do not proceed to the floor for consideration by the full House or Senate.
Major construction projects, such as new courthouses, often require two prospectus submissions:
one for the design phase (including site acquisition) and one for the build phase.110 If EPW and
T&I each pass resolutions approving of a prospectus, the project is eligible for funding and may
proceed once it receives appropriations. Congress provides funding for the FBF, including direct
appropriations and limitations on the availability of revenue, through the annual Financial
Services and General Government appropriations bill. Supplemental funding bills may also
provide direct appropriations to the FBF.
When a prospectus has been funded, GSA may enter into a contract to build, purchase, or lease
space, as described in the prospectus. Congress is not required to fund each prospectus that EPW
and T&I approve. Some prospectuses never receive funding, while others receive funding in
stages. For example, an approved courthouse construction prospectus may have a total project
106 GSA, Real Estate Acquisitions, June 2019, pp. 1-12, https://www.gsa.gov/cdnstatic/Real_Estate_Acquisitions/LDG-
Chapter-1_Requirements-Development_06-07-2019_final508c.pdf.
107 Information about GSA’s feasibility studies may be found at https://www.gsa.gov/cdnstatic/
Feasibility_Study_Phase.pdf.
108 GSA, “GSA Annual Prospectus Thresholds,” https://www.gsa.gov/real-estate/design-construction/gsa-annualprospectus-thresholds.
109 40 U.S.C. §3307.
110 GSA, Site Selection Guide, p. 26, https://www.gsa.gov/cdnstatic/GSA_Site_Selection_Guide_R2-sY2-i_0Z5RDZi34K-pR.pdf.
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cost estimate of $500 million, of which $200 million is provided in one fiscal year, and the
remainder is provided three fiscal years later.
Building Management
PBS provides an array of management services to its tenant agencies, including for the operation
and maintenance of space and for repairs and alterations to space leased or owned by PBS.111
These services are generally not performed by PBS employees but are instead contracted out to
private businesses.
Building operation and maintenance covers a range of ongoing duties, including:
•
•
•
•
•
•
•
•
•
•
electrical maintenance,
elevator inspection,
fire alarm testing,
HVAC maintenance,
janitorial services,
landscaping,
pest control,
plumbing,
roofing, and
waste management.112
Repairs and alterations are project-based services that may be major or minor in scope. Major
repairs or alterations are those with estimated costs that exceed PBS’s current threshold of $3.613
million in federally owned buildings or $1.8065 million in leased buildings. Projects that exceed
these thresholds are subject to the same prospectus requirements as construction and lease
projects. Minor repairs and alterations are those with estimated costs below PBS’s threshold.
Disposal of Excess and Surplus Real Property
Agencies are required to continually survey property under their control to identify any property
that they no longer need to carry out their missions—excess property—and to “promptly” report
that property as excess to PBS.113 Once PBS accepts the report of excess, it controls the property
as it moves through the disposal process. PBS first offers excess properties to other federal
agencies, which are generally required to pay fair market value for any properties they wish to
acquire.114
Excess properties that federal agencies do not purchase are designated “surplus,” and PBS must
then offer them to state and local governments and qualified nonprofits for use in accomplishing
public purposes specified in statute.115 All surplus federal properties must first be screened for
111 GSA, “Property Management Services,” https://www.gsa.gov/about-us/regions/welcome-to-the-midatlantic-region-
3/products-and-services/property-management-services.
112 GSA, “Building Maintenance and Operations,” https://www.gsa.gov/buy-through-us/purchasing-programs/federalstrategic-sourcing-initiative/building-maintenance-and-operations.
113 41 C.F.R. §102-75.60.
114 41 C.F.R. §102-75.190.
115 41 C.F.R. §102-75.350.
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potential use in providing services to the homeless.116 Once a surplus property has been
determined unsuitable for providing homeless services, or no eligible entity has acquired it, PBS
offers it for use providing other public benefits, such as a public airport, school, correctional
facility, hospital, or park.117 Agencies may convey surplus properties for public benefit at less
than fair market value—even at no cost.118
Surplus properties not conveyed for public benefit are then available for sale to state and local
governments at fair market value.119 These transactions, termed “negotiated sales,” require
eligible entities to pay fair market value for the properties and to use them to create public
benefits other than those specified in statute.120 For example, a city may purchase a surplus
federal office building through negotiated sale for use as a municipal building or buy a surplus
parcel of land for economic development, such as establishing an industrial park on it. The
conveyance documents for a negotiated sale must include an excess profits clause, which usually
runs for three years, to eliminate the potential for windfall profits to public agencies.121
PBS then makes available for public sale any surplus properties that are not disposed of through
negotiated sale.122 Public sales are competitive and may be conducted by brokers or through
online auction.
Issues Facing Congress
Given GSA’s role in supporting agency missions through its property management and
purchasing programs, Congress may consider (1) GSA’s management of post-pandemic space
planning given changing agency workspace needs, (2) the implementation of the Federal Assets
Sale and Transfer Act of 2016 (FASTA; P.L. 114-287, (3) the proposed construction of a new
Federal Bureau of Investigations (FBI) headquarters, and (4) TTS management of 18F and
Login.gov. Agency telework policies and occupancy plans—which determine the amount of
space needed for federal employees—have been the subject of hearings and legislation in the
118th Congress.123 Congress also continues to monitor implementation of FASTA124—which has
been viewed to have experienced significant setbacks—and many Members have expressed
interest in the process through which a new site for the new FBI headquarters facility is to be
selected.125 Additionally, GSA was the subject of an oversight hearing in March 2023 due to a
116 42 U.S.C. §11411.
117 41 C.F.R. §102-75.350.
118 41 C.F.R. §102-75.350.
119 41 C.F.R. §102-75.880.
120 GSA, Your Guide to Acquiring Federal Real Estate for Public Use, p. 5, https://disposal.gsa.gov/resource/
1530028366000/AcquiringFederalRealEstateForPublicUses.
121 41 C.F.R. §102-75.890.
122 41 C.F.R. §102-75.935.
123 For example, the House Committee on Oversight and Accountability held a March 9, 2023, hearing titled
“Oversight of Our Nation’s Largest Employer: Reviewing the U.S. Office of Personnel Management,” which included
a discussion of agency telework policies and building occupancy rates, and it held a September 7, 2023, hearing titled
“Oversight of Federal Agencies’ Post-Pandemic Telework Policies.” The House of Representatives passed the Stopping
Home Office Work’s Unproductive Problems Act (H.R. 139) on February 1, 2023. The bill was received in the Senate
and referred to the Senate Committee on Homeland Security and Governmental Affairs on February 2, 2023.
124 U.S. Congress, Senate Committee on Homeland Security and Governmental Affairs, FASTA Implementation and
Optimizing the Efficient Use of Federal Property, hearing, 118th Cong., 1st sess., June 8, 2023, at
https://www.hsgac.senate.gov/hearings/fasta-implementation-and-optimizing-the-efficient-use-of-federal-property/.
125 U.S. Congress, House Committee on the Judiciary, Oversight of the Federal Bureau of Investigations, hearing, 118th
Cong., 1st sess., July 12, 2023.
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report on misrepresentations made by TTS about the identity authentication standards offered by
Login.gov.126
Post-Pandemic Space Planning
In March 2020, as part of the federal government’s response to the spread of COVID-19, OMB
issued guidance encouraging all executive branch agencies to maximize telework flexibilities for
eligible workers.127 As the use of telework increased, the daily occupancy rate of federal buildings
fell to 29%,128 and the total amount of unutilized space grew by 2.2 million square feet.129 While
many agencies have not finalized their post-pandemic space needs, some research suggests there
may be a “significant increase” in the amount of hybrid and remote work opportunities for federal
employees.130 If so, there may be implications for real property planning and funding, as well as
broader implications for cities with a relatively strong federal presence in their real estate
markets.
Should agencies continue to provide expanded telework opportunities, they may reduce requests
to acquire new space and increase requests for funding to renovate and consolidate space. The
National Aeronautics and Space Administration, for example, has indicated that it intends to
reconfigure the floorplans of some of its buildings to accommodate flexible workspaces and then
consolidate employees into those locations and dispose of the excess space that was created.131 In
addition, there may be an increase in requests for funding for short-term leases during the
consolidation process if agencies (1) extend existing leases until the consolidated spaces are ready
to move into and (2) relocate employees temporarily while their offices are being reconfigured for
hybrid work. Short-term leases generally cost more than long-term leases, which may reduce the
initial savings, if any, that result from consolidating space.132 Over time, should federal agencies
dispose of the unneeded space that results from increased telework, then the government may
realize savings from decreased leasing or ownership costs and generate revenue from any
federally owned assets that are sold. The Office of Personnel Management estimated that in 2021,
the federal government saved $90 million in costs—ranging from reduced real estate to decreased
employee absences—as a result of adopting a maximum telework posture.133
A shift to a hybrid federal workforce may have repercussions for some cities through what is
known as the “doughnut effect,” where demand for real estate rises in the suburbs and falls in
downtown metropolitan areas, in part due to expanded work from home (WFH) or remote work
126 U.S. Congress, House Committee on Oversight and Accountability, Subcommittee on Government Operations and
the Federal Workforce, Login.gov Doesn't Meet the Standard, 118th Cong., 1st sess., March 29, 2023, H.Hrg. 118-17
(Washington: GPO, 2023).
127 OMB, Updated Guidance on Telework Flexibilities in Response to Coronavirus, March 12, 2020,
https://www.whitehouse.gov/wp-content/uploads/2020/03/M-20-13.pdf.
128 GSA, Leveraging Daily Occupancy Data, July 2022, https://www.gsa.gov/system/files/
FRPC%20Briefing_%20Leveraging%20Daily%20Occupancy%20Data%2020227.pdf.
129 GAO, Federal Real Property: GSA Could Further Support Agencies’ Post-Pandemic Planning for Office Space Use,
GAO-22-105105, September 2022, p. 13, https://www.gao.gov/assets/gao-22-105105.pdf.
130 Ibid., p. 30.
131 Ibid., p. 17.
132 GAO, Federal Real Property: GSA Needs to Strengthen Oversight of its Delegated Leasing Program, GAO-19-405,
June 2019, p. 13, https://www.gao.gov/assets/gao-19-405.pdf.
133 U.S. Office of Personnel Management, Status of Telework in the Federal Government, Fiscal Year 2021, December
2022, p. 29, https://www.opm.gov/telework/documents-for-telework/2021-telework-report.pdf.
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opportunities. A Stanford University study concluded that expanded WFH may have the
following long-term consequences:
•
•
•
•
More people may be willing to move farther away from downtown areas because
the number of days they need to commute will be reduced;
Small businesses that support downtown office workers, such as restaurants, will
migrate to suburban-growth areas;
Reduced economic activity in downtown areas will reduce city tax revenues; and
Demand for urban real estate will fall while demand for public transportation to
increasingly farther-out suburbs will increase.134
The permanent expansion of these work arrangements for federal employees might contribute to
the doughnut effect in cities with a relatively large federal presence, such as Washington, DC.
Implementation of the Federal Assets Sale and Transfer Act
In 2016, Congress took action to address long-standing obstacles to the timely disposal of
unneeded federal buildings, land, and structures. FASTA was designed to streamline and
centralize the disposal process through a six-year pilot program wherein a newly formed Public
Buildings Reform Board (PBRB) recommends the disposal of unneeded real property in three
rounds. In the initial round, which is largely completed, FASTA required the PBRB to
recommend a set of “high-value assets” to sell. Proceeds from the sale of the high-value assets are
to cover the costs associated with the disposal of properties in two subsequent rounds. OMB must
approve the PBRB’s recommendations for each round before agencies may begin disposing of
properties pursuant to those recommendations. FASTA disposals are subject to a more limited set
of statutory requirements than are disposals made through the traditional, decentralized disposal
process.
Several challenges have affected FASTA implementation. The sale of high-value assets generated
$194 million in revenue, considerably below the $500 million to $750 million target Congress
established in the legislation.135 The PBRB has stated that the range of future disposal
recommendations it can make has been “constrained” by this funding shortfall and by the
uncertainty surrounding agencies’ post-COVID telework policies and space needs.136 The PBRB
also noted that its primary source of information for developing recommendations, the Federal
Real Property Profile, provides incomplete and inaccurate data to the extent that “decisions
cannot be driven by data due to lack of quality.”137 In addition, the second round of disposals was
terminated after OMB rejected the PBRB’s initial submission and the PBRB subsequently lost
two members, leaving it short of a quorum and therefore unable to resubmit its recommendations
Stanford University, Institute for Economic Policy Research, “The Donut Effect: How COVID-19 Shapes Real
Estate,” January 2021, https://siepr.stanford.edu/publications/policy-brief/donut-effect-how-covid-19-shapes-realestate.
135 GAO, Federal Real Property: Lessons Learned from Setbacks in New Sale and Transfer Process Could Benefit
Future Disposal Efforts, GAO-23-106848, June 2023, p. 7, https://www.gao.gov/assets/830/826495.pdf.
136 PBRB, First Round Report: Recommendations Pursuant to the Federal Assets Sale and Transfer Act of 2016
(FASTA), December 27, 2021, pp. 13-14, https://www.pbrb.gov/files/2021/12/PUBLIC-VERSION-PBRB-First-RoundRecommendations-to-OMB-12_27_2021-1-1.pdf.
137 PBRB, High Value Assets Report: Key Findings and Recommendations Pursuant to the Federal Assets Sale and
Transfer Act of 2016, December 27, 2019, p. 15, https://www.pbrb.gov/pbrb/files/2021/01/20191227-High-ValueAssets-Report-as-Required-by-FASTA.pdf.
134
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within the time frame required by FASTA.138 The sale of properties during the second round was
to have provided up to $2.5 billion in revenue for the final round of FASTA disposals.
Given that FASTA has generated less revenue than anticipated, the PBRB may be limited in its
ability to dispose of unneeded space in the third and final round. For example, the PBRB may not
be able to recommend “challenging and costly” consolidation projects to OMB, despite the
potential of consolidation projects to yield significant space reduction and savings.139
One option for facilitating the disposal of additional properties under FASTA, including
consolidations, might be for Congress to provide appropriations to the Asset Proceeds and Space
Management Fund, which is used to pay for FASTA implementation costs. Additionally, Congress
may consider amending FASTA to extend the statutory deadline for submission of the final list of
recommendations, which is currently set for December 2024. Extending the deadline may permit
some agencies sufficient time to finalize their post-pandemic space needs and identify properties
that could be sold or consolidated.
FBI Headquarters
On February 8, 2016, GSA submitted a prospectus to Congress for the construction of a new
headquarters facility for the FBI.140 The new headquarters would allow for the consolidation of
more than 11,000 FBI employees currently located in the J. Edgar Hoover Building and 13 other
leased properties in the National Capital Region.141 The prospectus identified three potential sites
for the facility: Greenbelt, MD; Landover, MD; and Springfield, VA. In July 2017, GSA cancelled
the project, citing insufficient funding.142 No further action was taken until the enactment of the
FY2022 Consolidated Appropriations Act (P.L. 117-103). Section 530 of the law required GSA to
select one of the three sites “in as expeditious manner as possible.”
In September 2022, GSA published a document outlining the process by which the new FBI
headquarters site is to be chosen from the three previously identified locations.143 This plan was
modified in November 2022144 and again in July 2023.145 The September 2022 and November
2022 plans were substantively the same, and for clarity only the November 2022 plan is referred
to in the remainder of this section.
Under both the November 2022 and July 2023 plans, a selection panel of three government
employees—two from GSA and one from the FBI—is to assess each site based on five weighted
criteria and make a recommendation to the site selection authority, a full-time federal employee
138 GAO, Federal Real Property: Lessons Learned from Setbacks, p. 20.
139 GAO, Federal Real Property: Lessons Learned from Setbacks, pp. 2, 26.
140 GSA, Prospectus—FBI Headquarters Consolidation, February 2016, https://www.gsa.gov/system/files/
FY2017_National_Capital_Region_FBI_Headquarters_Consolidation.pdf.
141 GSA, Prospectus—FBI Headquarters Consolidation.
142
GSA, “GSA Releases Statement on FBI Headquarters,” press release, July 11, 2017, https://www.gsa.gov/about-us/
newsroom/news-releases/gsa-releases-statement-on-fbi-headquarters-07112017.
143 GSA, Site Selection Plan: Federal Bureau of Investigation Suburban Headquarters, September 2022,
https://www.gsa.gov/system/files/2022-09-22-FINALFBI%20HQ%20Site%20Selection%20Plan%20%28Signed%20and%20Redacted%29_0.pdf.
144 GSA, Site Selection Plan: Federal Bureau of Investigations Suburban Headquarters, November 2022,
https://www.gsa.gov/system/files/2022-11-18-FINALFBI_HQ_Site_Selection_Plan_Amendment_1_REDACTED_508_complete.pdf.
145 GSA, Site Selection Plan (Amendment 2): Federal Bureau of Investigations Suburban Headquarters, July 2023,
https://www.gsa.gov/system/files/
Site%20Selection%20Plan_FINAL_Amendment%20%232_7_14_2023_REDACTED%20%281%29.pdf.
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who is a member of the Senior Executive Service. The authority makes the final decision on the
site for the new headquarters and may reject the panel’s recommendation.
The July 2023 site selection criteria, below, are very similar to those set forth in the November
2022 plan. The language from the November 2022 plan is provided in the footnotes when it
differs from the language in the July 2023 plan.
1. FBI Mission Requirements
a. Proximity to the FBI Academy in Quantico, VA
b. Proximity to operationally significant FBI real estate assets in the region
c. Proximity to the Department of Justice, U.S. Capitol, and White House146
2. Transportation Access
a. Walking distance to a Metro station
b. Walking distance to a Virginia Railway Express or a Maryland Area Regional
Commuter station
c. Accessibility to a major bus line stop
d. Proximity to a commercial airport
3. Site Development Flexibility
a. Site area and geometry
b. Schedule risk147
4. Promoting sustainable siting and advancing equity
a. Advancing racial equity and support for underserved communities
b. Promoting sustainable locations and strengthening the vitality and livability of
communities in which federal facilities are located
5. Cost
a. Cost to acquire site plus cost to prepare site plus cost of off-site improvements plus
relative cost difference of expected construction start dates148
The two plans differ materially in one aspect: The July 2023 plan changed the weight assigned to
four of the five selection criteria. Table 3, below, shows the weight assigned to each criterion
under the November 2022 and July 2023 site selection plans.
Table 3. Weight Assigned to Site Selection Criteria, Out of 100 Points
Comparison of November 2022 and July 2023 Plans
Criteria
November 2022 Weight
July 2023 Weight
FBI Mission Requirements
35
25
146 The September 2022 and November 2022 site selection language for criteria 1c read, “Proximity to the Site of the
Headquarters of the U.S. Department of Justice.”
147 The September 2022 and November 2022 site selection plan for criteria 3b read, “Earliest Time the Government
Could Commence Construction Activities.”
148 The September 2022 and November 2022 site selection plan for Criteria 5 read, “5a: Cost to Acquire Site; 5b: Cost
to Prepare Site.”
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Criteria
November 2022 Weight
July 2023 Weight
Transportation Access
25
20
Site Development Flexibility
15
15
Supporting Sustainable
Siting and Advancing Equity
15
20
Cost
10
20
Source: GSA FBI Headquarters Site Selection Plan, November 2022; GSA FBI Headquarters Site Selection Plan,
July 2023.
Congress may consider holding hearings on the current site selection plan. Among the questions a
hearing might address are:
•
•
•
•
What are potential advantages and disadvantages of a single individual, the Site
Selection Authority, being the sole decision-maker on a new location, as opposed
to a panel of stakeholders?
What factors did GSA consider when it reduced the weight given to the FBI
Mission Requirements and Transportation Access criteria in the July 2023 site
selection plan?
What factors did GSA consider when it increased the weight given to the
Supporting Sustainable Siting and Advancing Equity, and Cost criteria in the July
2023 site selection plan?
What are the implications of the revised criteria weights for the FBI, taxpayers,
and the communities surrounding the three locations?
Oversight of TTS Management of 18F and Login.gov
In 2016, 18F, PIF, and TTS Solutions (then called the Office of Products and Programs) were
placed within the newly created Technology Transformation Services.149 Since that time, the GSA
OIG has issued three reports identifying deficiencies in TTS components, specifically 18F and
Login.gov. On October 24, 2016, the GSA OIG issued a report in response to concerns from GSA
senior officials about the management of 18F.150 The report found numerous deficiencies in 18F’s
business operations, including that 18F had unsuccessfully achieved full cost recovery in the
services it offered to agencies due to “inaccurate financial projections, increased staffing levels,
and the amount of staff time spent on non-billable activities.”151 Additionally, the GSA OIG found
that 18F had performed work “before [inter-agency and intra-agency] agreements were executed,
outside specified periods of performance, and without required [Chief Information Officer]
approval.”152
GSA OIG also identified violations of GSA IT policies by 18F personnel. These violations
became the subject of a subsequent GSA OIG report issued on February 21, 2017.153 The report
149 GSA, TTS Handbook, “A Brief History of TTS Solutions.”
150 GSA OIG, Evaluation of 18F, October 24, 2016, p. 1, https://www.gsaig.gov/content/evaluation-18f.
151 GSA OIG, Evaluation of 18F, p. 19.
152 GSA OIG, Evaluation of 18F, p. 15.
153 GSA OIG, Evaluation of 18F’s Information Technology Security Compliance, February 21, 2017, p. 1,
https://www.gsaig.gov/sites/default/files/ipa-reports/
OIG%20EVALUATION%20REPORT_Evaluation%20of%2018F%20IT%20Security%20Compliance_JEF17002_February%2021%202017.pdf.
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found that 18F “routinely disregarded and circumvented fundamental security requirements
related to both the acquisition of information technology and the operation of information
systems.”154 As a result, personally identifiable information was exposed to unauthorized users.155
Login.gov156
Login.gov was the subject of a March 2023 GSA OIG report, which found that GSA misled its
customer agencies about Login.gov’s non-compliance with NIST identity authentication
standards. NIST guidance requires agencies to select the appropriate levels of identity proofing
and digital authentication based on risks to the individual of unauthorized disclosure of their
information. These components include an Identity Assurance Level (IAL), referring to the
identity proofing process.157 The three different IALs have different documentation and
verification requirements and therefore present different levels of individual risk and security.
Login.gov initially presented customers with the option of identity proofing at the IAL1 or IAL2
levels.158 The OIG report disputed Login.gov’s ability to provide IAL2 identity proofing.159
Additionally, the GSA OIG found that GSA knowingly billed IAL2 customer agencies over $10
million for services, including for alleged IAL2 services that did not meet IAL2 standards.160
Furthermore, it found that GSA misled the Technology Modernization Fund about Login.gov’s
compliance with IAL2 to secure additional funding.161
Congress may have an interest in increasing oversight activities related to TTS management, GSA
management, and the reporting structures within GSA.
Author Information
Dominick A. Fiorentino
Analyst in Government Organization and
Management
154
Garrett Hatch
Specialist in American National Government
GSA OIG, Evaluation of 18F’s Information Technology Security Compliance, p. 1.
155 GSA OIG, Evaluation of 18F’s Information Technology Security Compliance, p. 5.
156 This section draws, in part, from CRS In Focus IF12395, Login.gov: Administration and Identity Authentication, by
Dominick A. Fiorentino, Natalie R. Ortiz, and Meghan M. Stuessy.
157 NIST, “Digital Identity Guidelines,” https://pages.nist.gov/800-63-3/sp800-63-3.html.
158 GSA OIG, GSA Misled Customers on Login.gov’s Compliance with Digital Identity Standards, March 7, 2023, p. 4,
https://www.gsaig.gov/content/gsa-misled-customers-logingovs-compliance-digital-identity-standards.
159 GSA OIG, GSA Misled Customers on Login.gov’s Compliance with Digital Identity Standards, p. 4.
160 GSA OIG, GSA Misled Customers on Login.gov’s Compliance with Digital Identity Standards, p. 2.
161 GSA OIG, GSA Misled Customers on Login.gov’s Compliance with Digital Identity Standards, p. 18.
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Disclaimer
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This is a copy of a public record, reproduced as it was published. It is not legal advice, and it may not be the version a court would rely on. Check the official source before you cite it.