GSA plans to stop providing HR shared services

Friday - 9/13/2013, 6:06am EDT

Jason Miller reports.

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The General Services Administration is getting out of the human resources and payroll shared service provider business.

The decision came as part of the review by administrator Dan Tangherlini. He wants GSA to focus on its core missions: acquisition, real estate and some of the technology services, said Anne Rung, GSA's associate administrator in the Office of Governmentwide Policy.

She said HR services just don't fit into their plans anymore.

"We haven't yet finalized even the requirements, but it certainly is our intent to move the service out," Rung said after speaking on a panel at the Shared Services Forum sponsored by ACT-IAC in Washington Thursday. "We put out a request for information in the effort really to try to gain input and help us develop the requirements. It's still in those preliminary phases."

Multiple requests to GSA for a copy of the RFI were not returned, and Rung couldn't provide more details on the notice.

GSA's HR services provides payroll and other services to 40 agencies and about 25,000 employees of which 12,500 are its own employees. GSA services mostly small agencies, with the exception of the Office of Personnel Management.

Pressure to move commodity systems

GSA's decision comes as the Obama administration is applying more pressure on agencies to share resources.

The Office of Management and Budget issued a shared services strategy in May 2012, setting a series of deadlines. It followed in March with a memo requiring agencies to consider federal shared service providers first when it's time to upgrade their financial management systems. And OMB created Uncle Sam's List (USL) to have one place to promote the availability of shared services.

OMB is planning to launch version 1.1 of USL in a few weeks that will include a simplified user interface and an easier way to promote existing services, said Peter Warren, who is leading the effort for OMB.

Scott Bernard, OMB's chief architect, said version 2 of Uncle Sam's List is expected to be ready in 2014 and will take into account the findings of a recent survey of acquisition, technology and financial management workers.

HR services a loss leader?

Former government sources said GSA's decision is interesting on several levels. First, OMB rejected the agency's initial application to be a HR shared service provider in 2004. GSA reapplied a few years later and received approval.

Sources say one of the biggest issues GSA faced in being a provider is the cost per employee. Sources say GSA charged agencies up to $200 to $300 more per person than other federal HR providers. So if GSA was losing money on the venture, in this time of tight budgets, it makes sense for them to get out of the business, sources say.

With GSA bowing out of HR shared services, including payroll, that leaves only the Interior Business Center (IBC), the Agriculture Department's National Finance Center (NFC) and the Treasury Department's HRConnect as civilian agency providers. But only the IBC and the NFC are payroll providers.

The fifth provider, the Defense Finance and Accounting Service, serves only the Defense Department.

Some experts question whether GSA's leaving will impact competition among providers as OPM begins to pump some energy back in the initiative.

Looking for a suite of services

David Vargas, the director of human resources for IT transformation at OPM, said his office is making sure the technology to meet human capital policy can be sustained.

"What now agencies are looking for are suites of services. They don't want to be entering things 3, 4, 5 different times as it relates to personnel. They want a single point of entry. That's a critical component of what agencies are looking for," Vargas said. "For the shared service centers, I've been talking to them on what they are asking for in terms of how they communicate with OPM, OMB and other agencies. They are looking for standardization of data elements, and interoperability. Actually, we are looking also for interoperability among systems. Those are the key functions. Once you get past the initial set up of these lines of business, you have to keep improving the service delivery to agencies."

OPM also is looking to make small improvements and upgrades, what they're calling smart growth, to the existing HR LOB systems.

With GSA dropping out as a HR provider, it opens the door for the other providers.

"I think it makes sense that [GSA] would look to probably get out of the business," said Joe Ward, the director of the Interior Business Center. "Even though that will probably be the case, I think there will be enough competition in the payroll area where federal civil servants will not have to suffer and worry about a monopoly."