A Review of the White House Presidential Transition Exercise

Readout of White House Presidential Transition Exercise

January 15, 2025

Today, Homeland Security Advisor Liz Sherwood-Randall convened current and future Cabinet members to conduct a statutorily mandated Principals-Level Presidential Transition Exercise in accordance with President Biden’s direction to carry out a professional transition.

This traditional meeting provided a structured opportunity to share lessons learned over the last four years and help the incoming team prepare to protect the Homeland beginning at 12 noon on January 20, 2025. Over the course of two hours, current and future Cabinet members discussed a range of scenarios, including preventing and responding to terrorist attacks as well as managing pathogens like avian flu. Participants underscored the interconnectedness between homeland incidents and global challenges. Read more

What is the White House Presidential Transition Exercise?

The White House Presidential Transition Exercise is a critical component of ensuring the peaceful and effective transfer of power between administrations in the United States. This exercise, which has become more formalized in recent years, involves various strategic activities to prepare incoming and outgoing administrations to address domestic and international challenges during a transitional period. Here’s a detailed exploration of its components, development, and examples:

The Presidential Transition Exercise is a series of coordinated efforts aimed at preparing the president-elect, their team, and the incumbent administration for a smooth transition of executive power. It is overseen by the White House Transition Coordinating Council (WHTCC) and the Agency Transition Directors Council (ATDC). Key elements include:

Briefings on National Security: The outgoing administration provides intelligence briefings to ensure continuity in defense and national security matters.
Policy Continuity: Agencies collaborate to provide detailed reports on ongoing initiatives, policies, and programs.
Emergency Preparedness: Simulations and exercises are conducted to prepare the incoming administration for crises, such as pandemics, natural disasters, or terrorist attacks.
Appointments and Staffing: Guidance is provided on appointing cabinet members and filling key positions.

The practice gained heightened importance after the passage of the Presidential Transition Act of 1963 and subsequent amendments, which mandate structured planning and information sharing.

Evolution of the Presidential Transition Exercise

Early Years (Pre-1963):
- Transitions were largely informal, dependent on the willingness of outgoing administrations to cooperate.
- Examples:
  - 1861 Lincoln Transition: Outgoing President Buchanan provided limited support, and the onset of the Civil War exacerbated the challenges.
  - 1933 FDR Transition: A delayed coordination between Hoover and Roosevelt during the Great Depression led to significant financial instability.
Formalization (1963-2000):
- The Presidential Transition Act of 1963 codified the need for organized transitions, allocating funds and resources.
- Example:
  - Clinton to Bush (2000): The contested election delayed transition preparations, exposing vulnerabilities in coordination.
Modern Era (Post-9/11):
- The 9/11 attacks underscored the need for robust transition planning to mitigate risks during periods of vulnerability.
- Initiatives like Presidential Policy Directive 1 (PPD-1) and the formation of transition teams in advance became standard.
- Example:
  - Bush to Obama (2008): Considered a “gold standard” transition. Despite political differences, George W. Bush ensured that the incoming Obama administration was well-briefed on issues like the financial crisis and ongoing wars in Iraq and Afghanistan.
Heightened Scrutiny (Post-2020):
- The Trump to Biden Transition highlighted challenges when outgoing administrations resist cooperation. Delayed access to resources and briefings led to concerns about continuity in pandemic management and national security.

Key Elements of the Transition Exercise

1. National Security Simulations

Incoming officials participate in tabletop exercises that simulate crises such as terrorist attacks or cyberattacks.
Example:
- In 2008, the Bush administration conducted a simulation of a global pandemic. However, the incoming Obama administration later noted gaps in preparedness for such scenarios.

2. Agency Collaboration

Each federal agency prepares transition books, summarizing ongoing programs, budgets, and challenges.
Example:
- The Department of Health and Human Services provided detailed plans for vaccine distribution during the 2020 transition, though implementation was hampered by political conflicts.

3. Budget and Resource Allocation

The General Services Administration (GSA) provides office space, IT resources, and funding for transition teams.
Example:
- The GSA’s delay in recognizing Biden as president-elect in 2020 postponed access to these critical resources.

4. Public Communication

Coordination between administrations ensures consistent public messaging to avoid confusion or instability.
Example:
- During the Obama to Trump transition, efforts were made to maintain continuity in messaging about counterterrorism operations.

Critical Challenges in Presidential Transition Exercises

Partisan Resistance:
- Political polarization can hinder cooperation between outgoing and incoming teams.
- Example:
  - The delayed cooperation during the 2020 transition created gaps in vaccine distribution and pandemic response.
Security Vulnerabilities:
- Transition periods are particularly vulnerable to external threats, as adversaries may exploit potential lapses in coordination.
- Example:
  - Intelligence agencies warned of heightened cyberattacks during the 2016 and 2020 transitions.
Complexity of Modern Governance:
- The scale of federal operations and the need for rapid onboarding of thousands of appointees complicate the transition process.
- Example:
  - In 2001, incoming Bush officials struggled with continuity in counterterrorism operations due to staffing delays.
Unforeseen Crises:
- Global crises, like the COVID-19 pandemic, can strain transition processes.
- Example:
  - The pandemic necessitated virtual briefings and new protocols during the 2020 transition, complicating the exchange of information.

Recommendations for Improvement

Mandatory Transition Timelines:
- Establish legally binding timelines for transition milestones, such as GSA certification and intelligence briefings.
Nonpartisan Oversight:
- Create an independent body to oversee transition activities, ensuring accountability and fairness.
Enhanced Crisis Simulations:
- Expand the scope of tabletop exercises to include emerging threats, such as climate disasters and artificial intelligence risks.
Public Transparency:
- Regular updates on transition progress can build public confidence and deter misinformation.
Training Programs for Incoming Teams:
- Develop comprehensive training modules for appointees to accelerate their understanding of agency operations.

The White House Presidential Transition Exercise is essential for democratic governance, ensuring stability during leadership changes. Despite progress in institutionalizing the process, challenges persist due to political polarization and unforeseen crises. By learning from past examples and implementing reforms, the U.S. can enhance its transition process and safeguard its institutions.

Bibliography

“The Presidential Transition: From Campaign to White House”
- Author: John P. Burke
- Publication Year: 2000
- Why Read It: This book offers a comprehensive analysis of the transition process, detailing historical examples and exploring the complexities of moving from campaign rhetoric to governance. Burke’s work remains relevant for its detailed case studies, particularly the transitions of Kennedy, Carter, Reagan, and Clinton.
“Before the Oath: How George W. Bush and Barack Obama Managed a Transfer of Power”
- Author: Martha Joynt Kumar
- Publication Year: 2015
- Why Read It: Kumar provides an inside look into one of the most successful modern transitions (2008–2009). The book highlights the importance of cooperation between outgoing and incoming administrations and offers lessons in leadership and bipartisanship.
“Power in Transition: The Peaceful Change of Office”
- Author: Charles O. Jones
- Publication Year: 1999
- Why Read It: This work explores the nuances of transitions as moments of vulnerability and opportunity. Jones delves into the institutional and personal challenges faced by incoming presidents, making it a must-read for understanding leadership continuity.
“Presidential Transitions: It’s Not Just the Position, It’s the Transition”
- Author: Stephen Hess
- Publication Year: 2001
- Why Read It: This book provides a concise yet insightful exploration of how presidents prepare for and adjust to the demands of office. Hess emphasizes the significance of appointing the right personnel and fostering good interagency relations during transitions.
“Decision Points”
- Author: George W. Bush
- Publication Year: 2010
- Why Read It: While primarily a memoir, Bush reflects on the transition to the Obama administration, providing firsthand insights into the challenges and responsibilities of ensuring a smooth handoff during a financial crisis and ongoing wars.

Reports and Studies

“Presidential Transition Act of 1963 and Amendments”
- Publisher: U.S. Congress
- Publication Year: 1963 (Amended multiple times)
- Why Read It: This legislative framework forms the backbone of modern transitions, ensuring funding, resources, and coordination. Reading the original text and amendments highlights the evolution of transition practices and the legal foundations supporting them.
“Presidential Transitions: Issues Involving Outgoing and Incoming Administrations”
- Publisher: Congressional Research Service (CRS)
- Publication Year: Regular updates (latest editions: 2020, 2022)
- Why Read It: CRS reports provide detailed, nonpartisan analyses of transition challenges, including national security, budgetary constraints, and political resistance. These reports are invaluable for understanding the practical implications of transition policies.
“Agency Transition Guide”
- Publisher: U.S. General Services Administration (GSA)
- Publication Year: Regularly updated
- Why Read It: This guide outlines the GSA’s role in supporting transitions, including funding, office space, and IT resources. It’s essential for understanding logistical and administrative aspects of transitions.
“Strengthening the Presidential Transition”
- Publisher: Partnership for Public Service
- Publication Year: 2010, with subsequent updates
- Why Read It: This report explores best practices for transitions and provides actionable recommendations for outgoing and incoming teams. It’s a practical guide for practitioners and scholars alike.

Articles and Journals

“The Vulnerable Period: National Security Challenges During Presidential Transitions”
- Author: Peter R. Orszag and Samantha Vinograd
- Publication Year: 2016
- Why Read It: Published in the Brookings Institution, this article examines how adversaries exploit transitions and how administrations can mitigate risks. It’s a must-read for understanding security vulnerabilities.
“From Trump to Biden: Transitioning Power Amid a Crisis”
- Author: David Marchick
- Publication Year: 2021
- Why Read It: This article in Foreign Affairs dissects the challenges faced during the 2020 transition, including the COVID-19 pandemic, political resistance, and delayed certification of election results.

Historical Case Studies

“The Transition from Hoover to Roosevelt: Lessons in Leadership During Crisis”
- Author: William E. Leuchtenburg
- Publication Year: 1964
- Why Read It: This study offers a deep dive into one of the most fraught transitions in U.S. history, illustrating the consequences of poor communication and coordination during times of economic upheaval.
“Kennedy to Johnson: The Transition of Power After a National Tragedy”
- Author: Doris Kearns Goodwin
- Publication Year: 1991
- Why Read It: Goodwin examines the abrupt transition following JFK’s assassination, highlighting the importance of preparation for unexpected leadership changes.

Key Government Documents

“National Strategy for Presidential Transition”
- Publisher: U.S. Department of Homeland Security (DHS)
- Publication Year: 2016
- Why Read It: This strategy document outlines protocols for managing risks and maintaining homeland security during transitions, making it a crucial resource for understanding interagency collaboration.
“Transition 2020: Managing Continuity in the Face of Crisis”
- Publisher: U.S. National Archives and Records Administration (NARA)
- Publication Year: 2020
- Why Read It: This report focuses on record management and continuity during the Biden transition, offering insights into how critical documents and policies are preserved and transferred.

White House Presidential Transition Exercise Participants in the dynamic and interactive discussion included:

Outgoing Administration

Secretary of Homeland Security Ali Mayorkas
Deputy Secretary of Homeland Security Kristie Canegallo
FEMA Administrator Deanne Criswell
Attorney General Merrick Garland
Secretary of Transportation Pete Buttigieg
Secretary of Veterans Affairs Dennis McDonough
Secretary of the Interior Deb Haaland
Deputy Secretary of Defense Kath Hicks
Vice Chairman of the Joint Chiefs ADM Chris Grady
Small Business Administrator Isabel Guzman
Deputy Director for National Intelligence for Mission Integration Morgan Muir
Deputy Secretary of Agriculture Xochi Torres-Small
Acting Under Secretary of State for Policy John Bass
Deputy Sectary of Energy David Turk
Acting EPA Administrator Jane Nishida
Acting NCTC Director Brett Holmgren
U.S. Coast Guard Commandant ADM Linda Fagan
Deputy Director of the FBI Paul Abbate
Deputy Director of CISA Nitin Natarajan
Director of the CDC Dr. Many Cohen (virtual)
Assistant Secretary for Preparedness and Response (HHS) Dawn O’Connell
Administrator of TSA Dave Pekoske