Overview
The U.S. Office of Personnel Management (OPM) has prepared human resources guidance for
agencies and employees on shutdown furloughs (also called emergency furloughs). A shutdown
furlough occurs when there is a lapse in annual appropriations. Shutdown furloughs can occur at
the beginning of a fiscal year, if no funds have been appropriated for that year, or upon
expiration of a continuing resolution, if a new continuing resolution or appropriations law is not
passed.
In a shutdown furlough, an affected agency would have to shut down any activities funded by
annual appropriations that are not excepted by law. Typically, an agency will have very little to
no lead time to plan and implement a shutdown furlough.
This guidance has been updated to incorporate the requirements of the Government Employee
Fair Treatment Act of 2019 (Public Law 116-1, January 16, 2019). That Act amended section
1341 of title 31, United States Code, to provide retroactive pay for Federal employees affected
by a lapse in appropriations as soon as possible after the lapse in appropriations ends, regardless
of scheduled pay dates, and subject to the enactment of appropriations Acts ending the lapse.
NOTE: This guidance applies to activities that are funded by annual appropriations. Some
agency functions have alternative funding sources and, as a result, are not directly affected by a
lapse in annual appropriations. Employees performing those functions will generally continue to
be governed by the normal pay, leave, and other civil service rules. Agencies should consult
with their legal counsel if they have further questions concerning this distinction. Employees
should consult with their Human Resources office.
Table of Contents
A. General ................................................................................................................................................................... 1
B. Employee Coverage................................................................................................................................................ 1
C. Working, and Work Schedules, During Furlough .................................................................................................. 4
D. Pay .......................................................................................................................................................................... 6
E. Performance Awards and Within-Grade Increases ................................................................................................. 9
F. Leave and Other Time Off ................................................................................................................................... 10
G. Holidays ............................................................................................................................................................... 19
H. Benefits ................................................................................................................................................................. 21
I. Employee Assistance ............................................................................................................................................ 24
J. Service Credit for Various Purposes .................................................................................................................... 25
K. Federal Employees on Military Duty ................................................................................................................... 25
L. Retirement ............................................................................................................................................................ 27
M. Retirement Services: Government Closure ......................................................................................................... 28
N. Payments upon Separation from Federal Service ................................................................................................. 29
O. Benefits under the Federal Employees’ Compensation Act (FECA) ................................................................... 30
P. Procedures ............................................................................................................................................................ 31
Q. Labor Management Relations Implications .......................................................................................................... 37
Sample Shutdown Furlough Decision Notice Due to a Lapse in Appropriations ........................................................ 40
Sample Notice of Furlough During Holiday to Excepted Employee Due to a Lapse in Appropriations ..................... 43
Sample Notice of Furlough During Intermittent Absences and Holidays to Excepted Employee Due to a Lapse in
Appropriations ............................................................................................................................................................. 46