2025 U.S. Government Shutdown: Agency-by-Agency Contingency Plan Breakdown
As the 2025 U.S. government shutdown looms, federal agencies have released contingency plans outlining how they will operate if Congress fails to pass funding by October 1, 2025. These plans provide critical details about which employees will be furloughed, which essential functions will continue, and how core services like Social Security, national defense, law enforcement, and healthcare will be affected.
Unlike prior shutdowns, this year’s preparations carry unprecedented implications. Agencies have been instructed not only to prepare for temporary furloughs but also to develop Reduction in Force (RIF) plans, raising the possibility of permanent job cuts in programs deemed inconsistent with presidential priorities.
In this post, we provide a clear agency-by-agency breakdown of these contingency plans so you can quickly understand how each department will be impacted.
If you want a specific agency’s shutdown contingency plan in detail, please reach out to our team.
Why This Shutdown Is Different
Previous government shutdowns were largely temporary disruptions, with furloughed employees returning once funding was restored. The 2025 shutdown scenario is different for three main reasons:
Permanent Layoff Risks (RIFs): Agencies have been directed to prepare plans that may cut jobs permanently rather than just pausing them.
Decentralized Planning: Contingency plans are hosted on individual agency websites instead of being centralized at the Office of Management and Budget (OMB).
Political Targeting: Layoffs and funding cuts may disproportionately affect programs that do not align with current presidential priorities.
Essential Services That Continue During a Shutdown
Even in the event of a full shutdown, certain critical government functions never stop. These include:
Social Security and Medicare payments
Military operations and active-duty personnel
Law enforcement and public safety functions (e.g., FBI, DHS, Secret Service)
Air traffic control and TSA airport security
Emergency services and disaster response
Immigration enforcement
Essential healthcare services
What This Blog Covers
In the sections below, you’ll find a detailed snapshot of each federal agency’s contingency plan. For each department, we summarize:
Total employees and expected furloughs
Time required to complete shutdown activities
How many staff remain on duty and under which legal authority
Which functions will continue
Which services will cease
This breakdown makes it easy to see at a glance how the shutdown may affect you, your family, and/or your business. And once your done with this analysis, position yourself and your company to win government contracts by knowing what agencies have requested for FY26 by heading over to our analysis: FY2026 U.S. Federal Discretionary Budget: Agency-by-Agency, Program-by-Program Guide for Government Contractors & Capture Teams.
Department of Homeland Security (DHS)
Total Employees: 271,927
Furloughed: 14,184
Retained: 257,743
44,466 (funded by non-annual appropriations)
43,053 (expressly authorized by law)
154 (implied by law)
183 (Presidential constitutional duties)
169,887 (protection of life and property)
Shutdown Completion Time: 5 days
Functions Continuing:
Law enforcement (drug interdiction, irregular migration management)
Passenger and cargo inspection at ports of entry
U.S. Secret Service protective functions
Counter-terrorism intelligence and dissemination
Disaster Relief Fund operations
Fee-funded activities (e.g., USCIS Immigration Examinations Fee Account)
Functions Ceasing:
Strategic planning and R&D
Most policy, administrative, auditing, and training functions
Regulatory and legislative activities unless excepted
Environmental Protection Agency (EPA)
Total Employees: 15,166
Shutdown Completion Time: 0.5 days (4 hours)
Retained Staff:
828 (non-annual appropriations)
24 (authorized by law)
284 (implied by law)
1 (Presidential duties)
597 (protection of life and property)
Functions Continuing:
Protection of land, buildings, labs, animals, and ongoing experiments
Law enforcement and criminal investigations
Emergency/disaster assistance
Superfund site work if threats to human life exist
IT system support (mission-critical and enterprise infrastructure)
Legal counseling, litigation, and law enforcement
Limited payments to contractors and grantees if needed to preserve funded functions
Planning for FY2027 President’s Budget
Functions Ceasing:
New grants and interagency agreements
Payroll beyond last covered pay period for non-exempt staff
EPA website updates (except shutdown-related)
Research and publications not tied to exempt/excepted activities
Most civil enforcement inspections and permitting activities
Department of War (Formerly DoD)
Total Employees: 741,477 civilians; 2,067,700 military continue on active duty
Shutdown Completion Time: 0.5 days
Retained Staff (civilians):
182,684 (non-annual appropriations)
223,889 (protection of life and property)
Functions Continuing:
National defense and worldwide military operations
Activities funded by prior appropriations (e.g., Pub. L. 119-21)
Safety-of-life and property functions
Functions Ceasing:
All activities chargeable to lapsed appropriations not otherwise excepted
Internal Revenue Service (IRS)
Total Employees: 74,299 (adjusted for DRP)
Shutdown Completion Time: Up to 0.5 days (not expected to be used)
Retained Staff:
All 74,299 exempt (funded under Inflation Reduction Act through 2031)
Functions Continuing:
All IRS operations continue normally under IRA funding
Functions Ceasing:
None expected during initial 5 business days
Social Security Administration (SSA)
Total Employees: 51,825
Shutdown Completion Time: 0.5 days
Retained Staff:
149 (non-annual appropriations)
1 (authorized by law)
45,251 (implied by law)
228 (protection of life and property)
Functions Continuing:
Timely and accurate payment of benefits (Social Security, SSI, Medicare-related)
Applications, appeals, and adjudication processes
Critical IT systems support
Fraud prevention operations
Functions Ceasing:
Benefit verifications
Non-critical earnings record corrections
FOIA responses, public inquiries, PR, training
Replacement Medicare cards
Overpayment processing
National Aeronautics and Space Administration (NASA)
Total Employees: 18,218
Shutdown Completion Time: 0.5 days
Retained Staff:
130 (non-annual appropriations)
164 (implied by law)
2,830 (protection of life and property)
Functions Continuing:
International Space Station operations
Essential satellite operations
Artemis program development and operations (safety-critical)
Activities preventing damage to property (hardware tests, facilities)
Functions Ceasing:
Educational outreach and NASA TV/web operations
Public access to NASA facilities
Most research and development unless aligned with presidential priorities
Department of Veterans Affairs (VA)
Total Employees: 461,499
Shutdown Completion Time: Not specified (ongoing functions heavily funded)
Retained Staff: 446,628
Furloughed Staff: 14,874
Functions Continuing:
Veterans’ compensation, pension, education, housing benefits
Full continuation of medical services
Functions Ceasing:
Limited administrative and support functions not tied to benefits or healthcare
Department of Labor (DOL)
Total Employees: 14,728
Shutdown Completion Time: 0.5 days (4 hours)
Retained Staff (excepted/exempt):
26 (funded by non-annual appropriations)
2 (authorized by law)
200 (implied by law)
8 (Presidential duties)
2,531 (protection of life and property
Total Retained: 2,767
Furloughed: 11,961
Functions Continuing:
Worker protection and safety inspections where life/property is at risk (e.g., OSHA inspections in imminent danger situations).
Enforcement of wage and hour laws tied to immediate worker protection.
Continuation of unemployment insurance claims processing and disbursement funded by trust funds, not appropriations.
Energy Employees Occupational Illness Compensation Program operations funded by mandatory appropriations.
Functions financed by prior-year balances or multi-year appropriations.
IT and infrastructure support necessary to sustain excepted functions.
Litigation and legal support required to protect life, property, or constitutional functions.
Functions Ceasing:
Bureau of Labor Statistics (BLS) economic data releases, including employment/unemployment reports.
Most OSHA, MSHA, and WHD inspections not tied to immediate danger.
Grant-making and training programs, including those for workforce development.
Routine administrative, policy, and oversight activities.
Public communications, statistical analysis, and research projects.
Department of Transportation (DOT)
Total Employees: 53,717
Shutdown Completion Time: 0.5 days for most operating administrations
Retained Staff (excepted/exempt):
11,980 (non-annual appropriations)
2 (authorized by law)
3,146 (implied by law)
26,376 (protection of life and property)
Total Retained: 41,504
Furloughed: 12,213
Functions Continuing:
Federal Aviation Administration (FAA):
Air traffic control (13,294 controllers retained without pay)
Airmen medical certifications and flight standards inspections
Aircraft certification and exemptions (including drones/UAS)
Accident investigations, commercial space launch oversight
Operation of NextGen safety technologies
FAA’s aircraft and airman registry
Support for contractor and grantee payments
Federal Highway Administration (FHWA):
All operations continue, fully funded by the Infrastructure Investment and Jobs Act (IIJA)
Federal Motor Carrier Safety Administration (FMCSA):
All operations continue (funded through Highway Trust Fund + fees)
National Highway Traffic Safety Administration (NHTSA):
All operations continue, supported by prior-year and IIJA funds
Federal Transit Administration (FTA):
All operations continue, funded via IIJA and multi-year appropriations
Federal Railroad Administration (FRA):
Rail accident/incident investigations continue
Safety inspections and enforcement remain active
Oversight of financial assistance programs (grant administration) continues
Pipeline and Hazardous Materials Safety Administration (PHMSA):
Accident investigations, hazardous materials inspections
Enforcement of hazmat safety regulations (emergency cases)
IT/cybersecurity support for safety-critical functions
Emergency Preparedness Grants funded and paid
Maritime Administration (MARAD):
U.S. Merchant Marine Academy continues operations (national defense)
Emergency and disaster assistance for vessels and port safety
Ready Reserve Fleet and Ship Disposal Program continue
Maritime Security, Cable Security, and Tanker Security Programs funded with carryover balances
Port Infrastructure and Marine Highway Grant programs continue
Great Lakes St. Lawrence Seaway Development Corporation (GLS):
Operations continue fully funded by its revolving fund; no staff furloughed
Office of Inspector General (OIG):
Law enforcement activities and hotline crisis center remain active
IT systems for law enforcement supported
Office of the Secretary (OST):
Emergency IT/cybersecurity, building security, and essential legislative/public affairs
Build America Bureau may process TIFIA loans if contract authority is available
Functions Ceasing:
FAA: Aviation rulemaking, random drug testing, personnel background checks, performance analysis, non-essential capital planning, and public affairs
FRA: Research and development projects, unfunded core functions, routine media inquiries
PHMSA: Hazardous materials rulemaking, outreach, training, FOIA, and grants not tied to emergencies
MARAD: Non-essential procurement at USMMA, civil rights, international/public affairs, and commercial sealift programs (except emergency waivers)
OIG: Audit activities, most HR/legal, public affairs, procurement/admin services
OST: Office of Civil Rights suspends operations; Build America Bureau may not close new RRIF loans during lapse
Department of Commerce (DOC)
Total Employees: 42,984
Shutdown Completion Time: Varies by program and operating unit (typically within 0.5 days, some up to 5 days)
Retained Staff:
1,810 (financed by resources other than annual appropriations)
0 (expressly authorized by law)
176 (necessarily implied by law)
197 (discharge of presidential duties)
6,090 (protection of life and property)
Total Retained: 8,273
Functions Continuing:
Weather, water, and climate observations, prediction, and warnings (via NOAA and NWS)
Fisheries management and law enforcement, including quota monitoring and observer activities
Export enforcement and criminal investigations tied to national security
Critical IT and cybersecurity systems, spectrum management, and the National Vulnerability Database
Patent and Trademark Office (USPTO) operations funded through fees/reserves
National Institute of Standards and Technology (NIST) activities tied to safety, security, international standards, and CHIPS Act-funded programs
Census Bureau limited activities for the 2026 Census Test (using carryover funds)
Ongoing litigation and legal support for excepted activities
Procurement, finance, and HR functions supporting excepted operations
NOAA essential services: National Weather Service (NWS), satellite operations, nautical chart updates, seafood inspections, stranding responses, and emergency marine monitoring
Functions Ceasing:
Most Census Bureau operations (e.g., ACS, monthly economic indicators, 2030 Census planning not tied to 2026 test)
Bureau of Economic Analysis (BEA) reporting and research
Most National Institute of Standards and Technology (NIST) research not tied to excepted or fee-funded programs
Most services of the International Trade Administration (ITA) and Minority Business Development Agency (MBDA), except fee-funded or treaty-bound activities
Economic Development Administration (EDA) activities not supported by supplemental appropriations
Technical oversight of contracts not supporting excepted functions
Outreach and public engagement activities across DOC agencies
Department of State (DOS)
Total Employees: 26,995
Shutdown Completion Time: 0.5 days (4 hours)
Retained Staff:
10,344 employees designated as “excepted” (primarily for national security, consular, and life/safety functions)
Functions Continuing:
All U.S. embassies and consulates abroad remain operational
Passport and visa services continue domestically and abroad
Protection of U.S. citizens overseas
Activities essential to national security, foreign affairs, and protection of life and property
Budget preparation work
Consular operations funded through fee-based accounts
Certain training programs essential to security and critical deployments
Functions Ceasing:
All non-excepted personnel operations after limited shutdown tasks
New obligations for grants and contracts (except for life, property, or national security)
Most new official travel (except national security-related)
Representational events and public speeches, unless directly tied to excepted functions
Social media activity unrelated to excepted operations
New hiring or Civil Service job offers
Key Notes:
Locally Employed (LE) staff treatment depends on host country labor laws; many may be considered excepted
Presidential appointees are not furloughed but go unpaid during the lapse
Contractors and grantees may continue work only if funding was previously obligated and adequate oversight is available
The Department categorizes operations into four funding statuses:
Category 1: Immediate shutdown (e.g., most regional and functional bureaus)
Category 2: Minimal balances, only critical security/medical/digital services continue
Category 3: Some residual balances, limited operations can continue longer
Category 4: Not expected to face impacts in Q1 FY2026 (e.g., consular operations, Ukraine embassy, hostage affairs)
Department of Energy (DOE)
Total Employees: Not explicitly stated in the directive; applies department-wide including the National Nuclear Security Administration (NNSA).
Shutdown Completion Time: Varies depending on carryover funding, revolving funds, and multi-year appropriations. Many activities can continue temporarily until balances are exhausted. Immediate shutdown applies to time-limited funds with no unobligated balances.
Retained Staff (Excepted/Exempt):
Employees funded by prior-year appropriations, receipts, reimbursable authority, or revolving funds until exhausted
Employees performing functions necessary for:
Safety of human life
Protection of property
National security (including nuclear security via NNSA)
Presidential duties
Minimum number of staff required to execute orderly shutdown and security of DOE facilities and classified material
Functions Continuing:
National security operations through the National Nuclear Security Administration (NNSA)
Protection of life and property, including nuclear facilities, hazardous materials, and energy infrastructure
Essential IT, cybersecurity, and communications to support excepted activities
Safety-critical oversight of nuclear and energy-related operations
Minimal administrative, payroll, and contracting functions required to close out previous obligations or continue excepted activities
Bonneville Power Administration operations, funded through permanent indefinite appropriations
Revolving fund and reimbursable authority programs until balances are exhausted
Functions Ceasing:
Awards of new grants, contracts, and cooperative agreements
Non-essential travel, training, conferences, and seminars
Most research and development not tied to national security or immediate safety
Hiring and personnel actions not tied to excepted functions
Public affairs, outreach, and reporting functions beyond shutdown-related communications
Routine programmatic activities, policy development, and economic research not supported by multi-year or carryover funds
GSA Shutdown Contingency Overview
Shutdown Duration to Execute: ~½ day to complete orderly shutdown activities.
Total Workforce: ~10,777 employees on board pre-shutdown.
Retained Employees:
Exempt (funded outside annual appropriations): 3,496 (mainly in revolving funds like the Acquisition Services Fund and Working Capital Fund).
Carryover-funded staff: 3,377 (but this number shrinks as carryover depletes).
Excepted (protect life/property): 22 employees.
Net Impact: Roughly 65% of GSA staff remain working due to exempt or carryover funding — much higher than agencies like NASA or EPA, where up to 95% may be furloughed.
Key Functions That Continue
Property & Asset Management
GSA manages federal real estate, motor vehicles, and personal property across 2,200+ communities.
Federal buildings will remain open for tenants, though public access may depend on occupant agency status.
Building security continues in coordination with the Federal Protective Service.
Contracting & Procurement
Existing contracts funded with multi-year/no-year appropriations continue without interruption.
GSA can make timely payments to contractors where prior obligations exist.
New contracts/options only proceed if tied to excepted activities (life, property, or exempt funds).
Revolving Fund Activities (Exempt)
Acquisition Services Fund (ASF), Working Capital Fund (WCF), Technology Modernization Fund (TMF), and certain policy/IT offices continue operations as they are not tied to annual appropriations.
Transportation audits and eRulemaking also remain operational.
Public Buildings Service (PBS)
Construction contracts, leases, and reimbursable agreements from prior-year funding continue.
Minimal staff retained to ensure life safety, property protection, and critical contractor work.
Functions That Cease or Defer
Property Disposal: GSA halts real and personal property disposal efforts during a lapse.
Intra-Governmental Payment and Collection (IPAC): Delays in collections across agencies.
Policy & Oversight Offices: Some policy functions (Office of Government-wide Policy, Civilian Board of Contract Appeals, Inspector General, etc.) furlough staff unless supported by exempt/carryover funds.
Department of the Interior (DOI)
Bureau of Land Management (BLM)
Staffing: ~10,700 on board; ~4,900 furloughed in an extended lapse; ~5,100 exempt; ~700 excepted for life/property.
Operating posture: Law enforcement, emergency response, and safety-of-life/property (including fire) continue. Many public lands remain accessible but with limited services.
Acquisition controls: COs must pre-review contracts for termination and stop-work clauses. Previously obligated work that doesn’t require BLM oversight may continue; work using BLM facilities generally cannot unless excepted.
Prohibited during lapse: New awards, travel, meetings, training, most use of government devices.
Contractor takeaway: Expect limited COR/CO availability; be ready to operate under stop-work or suspension on unfunded tasks while fully-obligated, low-touch work may continue.
Bureau of Ocean Energy Management (BOEM)
Staffing: 603 on board; 455 furloughed; 148 exempt; 45 life/property; 3 implied-by-law.
Role in lapse: Keeps a small excepted cadre; 40 on-call to assist BSEE permitting for safety. Uses prior-year funds for time-sensitive projects only.
Contractor takeaway: Safety-critical, time-sensitive offshore analyses and permitting support have priority; non-urgent NEPA and planning pauses.
Bureau of Safety and Environmental Enforcement (BSEE)
Staffing: 851 on board; 515 furloughed; 336 exempt; 336 life/property. Exempt staff convert to excepted if the lapse extends.
Operating posture: Critical permitting, preparedness verification, and offshore inspections continue to protect workers and environment.
Contractor takeaway: Inspection support, incident response, and safety/engineering functions remain active; expect accelerated catch-up when funds resume.
Bureau of Reclamation (BOR)
Staffing (initial): 4,111 on board; 241 furloughed; 3,095 exempt; 150 implied-by-law; 625 life/property; 1 authorized-by-law.
Trajectory: As carryover depletes, more furloughs occur; 2–3 months to reach full furlough level in an extended lapse.
Essential work: Dam and power operations, water deliveries, infrastructure security, emergency response.
Contractor takeaway: O&M for dams, powerplants, SCADA/cyber, and emergency repairs stays active; be ready to scale as carryover shifts to excepted status.
Bureau of Trust Funds Administration (BTFA)
Staffing: 418 on board; 371 furloughed; 47 exempt; 47 implied-by-law; 47 life/property.
Continuing functions: Receipt, investment, and disbursement of trust funds; legal and records support tied to fiduciary duties.
Contracting note: Fully obligated contracts may continue if contractor performance does not require government supervision during the lapse.
Contractor takeaway: Financial systems and records services remain; confirm obligation status and government touch-points.
U.S. Fish & Wildlife Service (FWS)
Staffing: 9,018 on board; 6,099 furloughed; 1,997 financed by other resources; 922 life/property.
Funding mix: Uses permanent/no-year funds and reimbursables (over $1B in permanent authority). Acquisitions may need time to issue stop-work or suspension orders.
Contractor takeaway: Expect refuges and hatcheries to operate only where funded; anticipate stop-work on annual appropriation tasks and rapid restarts after funding resumes.
Bureau of Indian Affairs (BIA)
Staffing: 3,792 on board; 2,104 furloughed; 1,688 financed by other resources; 877 implied-by-law; 1,154 life/property.
What continues: Law enforcement and detention, child and adult protection, irrigation and power, Safety-of-Dams, wildland fire, Tribal transportation.
What stops: Trust asset management, environmental clearances, oil and gas leasing and compliance, timber operations, road maintenance tied to Tribal Priority Allocation funds.
Contractor takeaway: Immediate demand in public safety, utilities, dam safety, and fire. Expect backlog in realty, NEPA, and resource management post-shutdown.
Bureau of Indian Education (BIE)
Staffing: 3,138 on board; 0 furloughed. K-12 and post-secondary forward-funded; operations continue.
Forward funding: Prior-year and forward funding keep schools open.
Contractor takeaway: Facilities, maintenance, and student-support contracts remain active; minimal interruption.
Assistant Secretary: Indian Affairs (AS-IA)
Staffing: 208 on board; 176 furloughed; 30 exempt; 31 implied-by-law.
Continuing functions: Emergency response, law enforcement coordination, child-protection oversight, protection of Federal and Indian lands and facilities.
Contractor takeaway: HQ leadership and coordination roles persist—use this window to confirm authorities and points of contact for excepted work.
National Park Service (NPS)
Employees: ~20,000 total; most furloughed.
Continues: Law enforcement, emergency response, protection of life and property, and critical facility operations.
Halts: Visitor services, education, most maintenance, scientific research, cultural programs.
Contractor takeaway: Law enforcement, safety, and emergency response contracts continue. Tourism and recreation-dependent vendors hit hardest.
Office of Inspector General (OIG)
Employees: 300; ~291 furloughed.
Continues: Minimal staff for budget, IT, facilities, and emergency law enforcement.
Halts: Investigations, audits, evaluations, prevention activities.
Contractor takeaway: Oversight and audit contract delays. Only IT/data center and emergency law enforcement support remain active.
Office of the Secretary (OS)
Employees: 2,807; 2,134 furloughed.
Continues: Leadership, shared services (payroll, HR, acquisitions), revenue collection, BIL, IRA, LWCF, FEMA-supported programs.
Halts: Audit and compliance at ONRR, royalty enforcement, rulemaking, appeals.
Contractor takeaway: Shared services, IT, HR, acquisitions, and mineral revenue management continue. Consulting and compliance monitoring stalls.
Office of Surface Mining Reclamation & Enforcement (OSMRE)
Employees: 518; 412 furloughed.
Continues: Abandoned Mine Lands Emergency Program, emergency inspections, imminent harm cases, Bipartisan Infrastructure Law programs.
Halts: Grants, state program oversight, permitting, training, non-emergency reclamation.
Contractor takeaway: Emergency reclamation and infrastructure-law-funded projects remain strong. Grant-supported and routine oversight contracts stop.
Office of the Solicitor (SOL)
Employees: 556; ~490 furloughed.
Continues: Litigation, counsel for BIA and NPS law enforcement, Bureau of Reclamation operations, ethics and FOIA if reimbursable.
Halts: Most legal, FOIA, and advisory services without non-lapsing funding.
Contractor takeaway: Court-driven legal support and compliance advisory contracts remain active. Broader legal consulting pauses.
U.S. Geological Survey (USGS)
Employees: 8,250; 4,335 furloughed.
Continues: Reimbursable-funded research, hazard monitoring (earthquakes, volcanoes, streamgages, Landsat), emergency response science.
Halts: Large-scale investigations, water quality data, online maps and publications, non-essential analysis.
Contractor takeaway: Hazard monitoring, satellite operations, and reimbursable R&D survive shutdowns. Purely federally funded research pauses.
Agencies Without Current September 2025 Plans
The following major agencies have not yet published updated contingency plans for the potential September 30, 2025 shutdown:
Department of Interior - Last plan published in 2023, though preparing for significant layoffs
Department of Housing and Urban Development - Last plan published in 2023 (the plan was removed from HUD’s website recently)
Want to position yourself and your company to win federal contracts? Know what agencies have requested for FY26 by heading over to our analysis: FY2026 U.S. Federal Discretionary Budget: Agency-by-Agency, Program-by-Program Guide for Government Contractors & Capture Teams.
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