Security clearances have three levels — and five investigation tiers.

If you are preparing for your first clearance investigation, transitioning between positions at different levels, or navigating the current Trusted Workforce 2.0 reforms, understanding how the levels, tiers, and authorities fit together is essential. This guide covers the complete framework.

Section I Three classification levels under E.O. 13526

Executive Order 13526, "Classified National Security Information," issued December 29, 2009, established the current framework for classification of national security information. The Order defines three classification levels based on the severity of potential damage from unauthorized disclosure.

Confidential — damage to national security

Under E.O. 13526 Section 1.2(a)(3), information is classified Confidential when unauthorized disclosure could reasonably be expected to cause damage to national security that the original classification authority is able to identify or describe. Typical examples:

• Administrative information that reveals routine operations or internal procedures
• Technical specifications of systems that are not highly sensitive
• Personnel information that could identify specific assignments or capabilities
• Certain budget information showing funding levels for non-critical programs

A Confidential clearance authorizes access to Confidential information only. Positions requiring Confidential access are relatively few in the modern federal workforce — most positions either require no clearance (non-sensitive) or require Secret or higher.

Secret — serious damage to national security

Under E.O. 13526 Section 1.2(a)(2), information is classified Secret when unauthorized disclosure could reasonably be expected to cause serious damage to national security. Typical examples:

• Military plans, weapons capabilities, or intelligence methods
• Foreign government information shared under protection agreements
• Cryptographic information
• Specific operational details of national security programs
• Intelligence activities, sources, or methods

A Secret clearance is the most common level in the federal workforce. Positions with Secret access exist across DoD, DHS, State, Commerce, Energy, Treasury, Justice, and many other departments. A Secret clearance authorizes access to Confidential and Secret information.

Top Secret — exceptionally grave damage

Under E.O. 13526 Section 1.2(a)(1), information is classified Top Secret when unauthorized disclosure could reasonably be expected to cause exceptionally grave damage to national security. Typical examples:

• Vital defense plans and military strategies
• Intelligence about other nations' capabilities, intentions, or vulnerabilities
• Compartmented intelligence operations (covered additionally by SCI)
• Information whose disclosure would compromise strategic national interests
• Cryptologic systems and methods of the highest sensitivity

A Top Secret clearance authorizes access to Confidential, Secret, and Top Secret information. Positions with TS access exist primarily in the Intelligence Community, DoD combatant commands, senior leadership positions at most agencies, and specialized program offices.

Classification authority and declassification

Under E.O. 13526 Section 1.3, classification authority is limited to specific officials designated by the President or agency heads. Most classification decisions are made by Original Classification Authorities (OCAs) at various levels. Derivative classification occurs when existing classified information is incorporated into new documents.

Classified information is subject to systematic declassification after specific time periods (typically 10, 25, or in some cases 50 or more years) unless exempted for specific national security reasons. The National Archives and Records Administration (NARA) oversees the declassification process.

DOE Q and L clearances

The Department of Energy uses parallel clearance designations for nuclear-related information under the Atomic Energy Act:

• Q clearance — equivalent to Top Secret in scope, providing access to Top Secret Restricted Data (TS/RD) and Top Secret Formerly Restricted Data (TS/FRD)
• L clearance — equivalent to Secret in scope, providing access to Secret Restricted Data (S/RD) and Confidential Restricted Data (C/RD)

Q and L clearances are administered through DOE's Office of Departmental Personnel Security rather than through DCSA. Reciprocity between DOE Q/L clearances and DoD/IC TS/Secret clearances is structured but not automatic — agency-specific requirements often apply.

Section II Above Top Secret — SCI and SAP

Above Top Secret are specialized access control systems that require TS-level clearance as a baseline but add program-specific or compartment-specific controls.

Sensitive Compartmented Information (SCI)

Sensitive Compartmented Information, governed by Director of National Intelligence (DNI) authorities and ICD 704, covers intelligence information related to sources, methods, or analytical processes. SCI is divided into compartments — specific categories of intelligence information that require separate indoctrination beyond baseline TS clearance.

Common SCI control markings include:

• HCS (HUMINT Control System) — human intelligence sources
• SI (Special Intelligence) — signals intelligence
• TK (TALENT KEYHOLE) — imagery intelligence
• G (Gamma) — specific highly sensitive SIGINT

A "TS/SCI" clearance means the individual holds a Top Secret clearance and has been indoctrinated into one or more SCI compartments. An individual may hold TS without SCI; the reverse (SCI without TS) is not possible.

SCI indoctrination typically requires a polygraph examination (counterintelligence or full scope). The polygraph is conducted at the agency's security office using certified examiners. Polygraph examinations may be lifestyle polygraphs covering personal conduct (criminal activity, illegal drug use, unauthorized disclosures) or counterintelligence polygraphs focused specifically on intelligence-related concerns.

Special Access Programs (SAP)

Special Access Programs, governed by E.O. 13526 Section 4.3 and DoD Instruction 5205.07, are programs established to protect information whose protection requires controls beyond standard TS and SCI protections. SAP categories:

• Acknowledged SAP — the existence of the program is acknowledged though specifics are protected
• Unacknowledged SAP (USAP) — the existence of the program is itself classified
• Waived SAP — certain Congressional notification requirements are waived for specific programs

SAP access requires read-on to the specific program, in addition to baseline TS clearance. Individuals may be read in to one or more SAPs over the course of their career. SAP access is strictly compartmented — being cleared into one SAP does not grant access to other SAPs.

Polygraph requirements

Polygraph examinations are required for:

• Most SCI indoctrinations (especially in intelligence agencies — CIA, NSA, NRO, NGA, DIA)
• Certain SAP programs
• Specific positions within DoD, DHS, and Department of Justice
• Certain positions in military intelligence components

Polygraph results are not themselves a binary pass/fail — the results are one factor considered in adjudication. Adverse polygraph reactions can trigger expanded interviews and investigation but do not automatically disqualify. Inconclusive or deceptive readings typically result in follow-up examinations or resolution through investigation.

Access controls in practice

A cleared individual's access portfolio may include multiple components:

• Baseline national security clearance (Confidential, Secret, or Top Secret)
• SCI compartments (if applicable)
• SAP read-ons (if applicable)
• Agency-specific accesses (e.g., NATO, COSMIC Top Secret, AWACS-specific)
• Need-to-know within the individual's specific work assignments

"Need to know" is a separate requirement from clearance level — even an individual with TS/SCI/SAP access cannot access classified information without a legitimate official need related to their duties.

Section III Security clearance vs. public trust suitability

The federal personnel vetting system has two distinct evaluation frameworks that employees often confuse. Understanding the difference is essential because they have different authorities, standards, and consequences.

National security clearance framework

Security clearances address the risk of harm to national security from unauthorized disclosure of classified information. Authorities:

• E.O. 12968 — Access to Classified Information (1995, as amended) — governs eligibility for access
• E.O. 13526 — Classified National Security Information (2009) — governs classification
• E.O. 10450 — Security Requirements for Government Employment (1953) — foundational authority for security determinations
• 5 CFR Part 732 — National Security Positions — establishes position designation requirements
• SEAD 4 — Security Executive Agent Directive 4, National Security Adjudicative Guidelines (2017)

The form used is SF-86 (Questionnaire for National Security Positions). Investigations are Tier 3 (Secret) or Tier 5 (Top Secret / SCI). The Security Executive Agent is the Director of National Intelligence (DNI) under E.O. 13467 as amended.

Public trust suitability framework

Public trust determinations address the risk of harm to the integrity or efficiency of federal service from positions with specific risk profiles. Authorities:

• 5 CFR Part 731 — Suitability — governs suitability for employment in non-sensitive positions
• E.O. 13467 — Reforming Processes Related to Suitability for Government Employment, Fitness, and Credentialing (2008, as amended)
• Trusted Workforce 2.0 framework — governmentwide consolidation of vetting processes

The form used is SF-85P (Questionnaire for Public Trust Positions) or SF-85 (for Low Risk positions). Investigations are Tier 1 (Low Risk), Tier 2 (Moderate Risk), or Tier 4 (High Risk). The Suitability Executive Agent is the Office of Personnel Management (OPM).

Key distinctions

Dimension	Security Clearance	Public Trust
Risk evaluated	Harm to national security	Harm to agency integrity/efficiency
Application form	SF-86	SF-85 or SF-85P
Adjudicative guidelines	SEAD 4 (13 guidelines)	5 CFR 731.202 (8 factors)
Executive agent	DNI (Security Executive Agent)	OPM (Suitability Executive Agent)
Investigation tiers	Tier 3, Tier 5	Tier 1, Tier 2, Tier 4
Appeal rights	Limited; Egan precludes MSPB review	MSPB appeal available

Positions requiring both

Some positions require both a public trust designation and a security clearance. For example, a high-risk public trust position that also requires Secret clearance involves both Tier 4 and Tier 3 considerations. In practice, the higher-tier investigation typically satisfies the lower — a Tier 5 investigation for TS/SCI generally covers the suitability questions that would have been addressed by a Tier 4 public trust investigation.

Suitability vs. clearance decisions

Decisions under the two frameworks can differ. An individual who passes a suitability determination may still be denied a clearance because the standards differ. An individual denied a clearance may still be suitable for non-sensitive employment. The frameworks address overlapping but distinct concerns. See Workplace Topic 38 on Suitability for detailed coverage of the public trust framework.

Section IV Investigation Tiers 1-5 under Federal Investigative Standards

The 2012 Federal Investigative Standards established the current five-tier investigation structure, replacing the older NACLC/BI/SSBI terminology. Each tier corresponds to specific position sensitivity and clearance requirements.

Tier 1 — Low Risk Non-Sensitive

Tier 1 investigations cover low-risk non-sensitive positions, including HSPD-12 credentialing for federal employees and contractors. Key features:

• Investigation type — National Agency Check with Inquiries (NACI) or Tier 1-specific successor
• Scope — 5 years (employment, residence, education)
• Form — SF-85 (Questionnaire for Non-Sensitive Positions)
• Typical turnaround — 30-60 days under current DCSA timelines
• Reinvestigation — formerly every 15 years; transitioning to continuous vetting

Tier 1 is required for most federal employment positions that do not involve classified information or sensitive duties. HSPD-12 Personal Identity Verification (PIV) credentials for federal facility access typically require at minimum a Tier 1 investigation.

Tier 2 — Moderate Risk Public Trust

Tier 2 investigations cover moderate-risk public trust positions. Key features:

• Investigation type — Moderate Background Investigation (MBI) or successor Tier 2 investigation
• Scope — 5-7 years depending on specific elements
• Form — SF-85P
• Typical turnaround — 60-120 days
• Reinvestigation — historically every 5 years; transitioning to continuous vetting

Tier 2 positions typically involve moderate risk to the integrity of federal service — financial management positions, information technology positions with access to sensitive information, positions with access to personally identifiable information (PII).

Tier 3 — Non-Critical Sensitive and Secret

Tier 3 investigations cover non-critical sensitive positions and Secret clearances. Key features:

• Investigation type — Tier 3 investigation (formerly NACLC — National Agency Check with Law and Credit)
• Scope — 10 years for key elements (employment, residence, education, criminal records)
• Form — SF-86
• Typical turnaround — 60-120 days under current timelines
• Reinvestigation — formerly every 10 years; transitioning to continuous vetting

Tier 3 is the most common investigation tier for cleared federal positions. The investigation includes national agency checks, local law enforcement checks, credit checks, and verification of employment, residence, and education.

Tier 4 — High Risk Public Trust

Tier 4 investigations cover high-risk public trust positions. Key features:

• Investigation type — Tier 4 investigation (formerly Background Investigation — BI)
• Scope — 7-10 years depending on specific elements
• Form — SF-85P (with additional modules for certain positions)
• Typical turnaround — 90-180 days
• Reinvestigation — historically every 5 years; transitioning to continuous vetting

Tier 4 positions include senior financial management roles, positions with broad access to sensitive operational information, and positions with significant public-facing responsibility. Tier 4 is typically used for positions that are not classified but involve substantial trust.

Tier 5 — Critical Sensitive, Special Sensitive, Top Secret, SCI

Tier 5 investigations cover critical sensitive and special sensitive positions, Top Secret clearances, and SCI access. Key features:

• Investigation type — Tier 5 investigation (formerly SSBI — Single Scope Background Investigation)
• Scope — 10 years or to age 18 (whichever is shorter)
• Form — SF-86
• Field interviews — required with references, neighbors, coworkers, supervisors
• Foreign coverage — detailed review of foreign contacts, travel, and financial interests
• Subject interview — in-person interview with the applicant
• Typical turnaround — 120-240+ days (improving under TW 2.0 and NBIS)
• Reinvestigation — formerly every 5 years; transitioning to continuous vetting
• Polygraph — may be required for SCI indoctrination or specific agency positions

Tier 5 is the most extensive investigation routinely conducted. Field investigators conduct in-person interviews with individuals who have known the applicant personally over the past 10 years, covering all aspects of personal, professional, and financial life.

Current transition — from five tiers to three

Under Trusted Workforce 2.0, the Performance Accountability Council has proposed consolidating the five-tier model into three tiers:

• High Tier (consolidating former Tiers 4 and 5) — High Risk Public Trust, DOE Q, Top Secret, SCI, Critical Sensitive, Special Sensitive
• Moderate Tier (consolidating former Tiers 2 and 3) — Moderate Risk Public Trust, Confidential, Secret, Non-Critical Sensitive
• Low Tier (former Tier 1) — Low Risk Non-Sensitive, HSPD-12 Credentialing

Implementation of the three-tier model is contingent on full deployment of NBIS. As of early 2026, DoD projects major NBIS development completion by end of fiscal year 2027. During the transition, legacy five-tier terminology remains in wide use.

Section V Adjudication under SEAD 4 guidelines

After an investigation is completed, adjudication is the process of evaluating the collected information against established standards to determine whether the individual should be granted, denied, or conditionally approved for the clearance.

SEAD 4 — National Security Adjudicative Guidelines

Security Executive Agent Directive 4 (SEAD 4), issued in 2017 by the Director of National Intelligence, establishes the National Security Adjudicative Guidelines used for all federal security clearance determinations. SEAD 4 identifies 13 guidelines:

• Guideline A — Allegiance to the United States
• Guideline B — Foreign Influence (contacts and ties to foreign entities)
• Guideline C — Foreign Preference (acting to benefit a foreign country)
• Guideline D — Sexual Behavior (conduct creating vulnerability to coercion)
• Guideline E — Personal Conduct (reliability, trustworthiness, good judgment)
• Guideline F — Financial Considerations (financial problems, unexplained wealth)
• Guideline G — Alcohol Consumption (excessive use, incidents)
• Guideline H — Drug Involvement and Substance Misuse (illegal drugs, prescription misuse)
• Guideline I — Psychological Conditions (conditions affecting judgment, reliability)
• Guideline J — Criminal Conduct (criminal behavior, convictions, arrests)
• Guideline K — Handling Protected Information (past security violations)
• Guideline L — Outside Activities (activities creating conflicts or vulnerabilities)
• Guideline M — Use of Information Technology (computer misuse, unauthorized access)

Each guideline specifies concerns (factors that raise security issues) and conditions that could mitigate the concerns. Adjudication evaluates the whole person across all guidelines rather than any single issue.

Whole-person concept

Under SEAD 4 Paragraph 2(b), adjudication applies the "whole-person concept" — consideration of all relevant circumstances, including:

• The nature, extent, and seriousness of the conduct
• The circumstances surrounding the conduct
• The frequency and recency of the conduct
• The individual's age and maturity at the time
• The extent to which participation is voluntary
• The presence or absence of rehabilitation and other permanent behavioral changes
• The motivation for the conduct
• The potential for pressure, coercion, exploitation, or duress
• The likelihood of continuation or recurrence

No single factor, including past criminal conduct or financial problems, automatically disqualifies an applicant. The adjudicator considers whether the conduct continues to raise concerns given time elapsed, evidence of changed behavior, and circumstances.

Bond Amendment disqualifiers

Under the Bond Amendment (Section 3002 of the Intelligence Reform and Terrorism Prevention Act, codified at 50 U.S.C. 3343), certain categories of conduct result in mandatory denial for specific clearance levels:

• Conviction of a crime with sentence of more than 1 year — disqualifies from access to Special Access Programs, SCI, and any position requiring Q clearance
• Current user of illegal drugs (controlled substance as defined by the Controlled Substances Act) — disqualifies from security clearance at any level
• Mental incompetence declared by a court — disqualifies from classified information access
• Dishonorable discharge from the armed forces — disqualifies from classified information access

These are absolute disqualifiers not subject to whole-person mitigation. Waiver is available in some circumstances but requires specific agency head determination.

Adjudicative authorities

Adjudication is conducted by agency security or personnel security offices. For DoD civilians and military, the Consolidated Adjudications Services (part of DCSA) handles most adjudications. For intelligence community positions, specific agency adjudication authorities apply. For many other federal agencies, DCSA's Consolidated Adjudications Services provides adjudication services.

Processing timelines

Under current DCSA metrics, typical adjudication timelines (after investigation completion):

• Tier 3 (Secret) — adjudication typically 15-30 days
• Tier 5 (Top Secret) — adjudication typically 30-60 days
• SCI indoctrination — agency-specific, often 30-90 days after adjudication

Combined investigation-plus-adjudication timelines are published quarterly by DCSA. As of early 2026, DCSA reports significant improvements over the 2017-2019 backlog period, with most investigations completing within target windows.

Section VI Reciprocity between agencies

Reciprocity is the principle that a clearance granted by one federal agency should be accepted by another without unnecessary reinvestigation. In practice, reciprocity has significant limits that employees often encounter when moving between agencies or positions.

Statutory and regulatory framework

Reciprocity is governed by:

• E.O. 13467 (2008, as amended by E.O. 13488 and E.O. 13764) — Reforming Processes Related to Suitability, Fitness, and Credentialing
• E.O. 13549 — Classified National Security Information Program for State, Local, Tribal, and Private Sector Entities
• SEAD 7 — Reciprocity of Background Investigations and National Security Adjudications (2018)
• 32 CFR Part 147 — Adjudicative Guidelines for Determining Eligibility for Access to Classified Information

The core principle under E.O. 13467 Section 1.2 is that a background investigation or adjudicative determination completed by any agency should be accepted by any other agency for equivalent or lower-level access.

Baseline reciprocity — what transfers

Baseline reciprocity generally applies to:

• The underlying background investigation (once completed, should not be repeated)
• The security clearance at the same or lower level
• The favorable adjudicative determination

Under SEAD 7, the gaining agency may conduct limited adjudicative review but should not require a new investigation unless specific conditions apply.

Exceptions to reciprocity

Reciprocity does not apply automatically in these circumstances:

• Out-of-scope investigations — clearances where the underlying investigation exceeds the reinvestigation period (traditionally 5 years for TS, 10 years for Secret; now continuous vetting-based)
• Break in access — if the employee has been without clearance access for more than 24 months, a new investigation may be required
• New accesses — SCI indoctrination, SAP read-on, DOE Q/L are not automatically transferable; each requires specific agency process
• Polygraph requirements — if the new position requires polygraph and the existing clearance did not include one, a new polygraph is required
• Unfavorable information — if adverse information has come to light since the last adjudication, reciprocity may be denied pending review
• Position-specific requirements — certain positions have additional requirements beyond standard clearance (specific agency requirements, program read-ons)

Practical reciprocity challenges

Common reciprocity friction points in practice:

• Moving from DoD Secret to IC TS/SCI requires Tier 5 upgrade plus SCI indoctrination plus typically polygraph — effectively a new process
• Moving between different SAP programs typically requires separate read-on even when baseline clearance is identical
• DOE Q to DoD TS/SCI reciprocity requires adjudicative review and may require additional processes
• Contractor clearance transferring to civil service clearance (or vice versa) may trigger additional suitability review even though the underlying investigation is the same

Trusted Workforce 2.0 reciprocity goal

Under Trusted Workforce 2.0, the goal is "clear once, trusted everywhere" — effectively automated reciprocity for all national security clearances at the same level. Implementation targets include:

• Reduced reciprocity timelines from months to days or weeks
• Automated information sharing between agencies
• Unified adjudication standards reducing variance between agencies
• Centralized continuous vetting reducing need for reinvestigation at transfer

Full implementation continues through 2026-2027, contingent on NBIS deployment and agency adoption of Trusted Workforce 2.0 requirements.

Section VII Trusted Workforce 2.0 and the reform landscape

Trusted Workforce 2.0 (TW 2.0) is the governmentwide reform initiative modernizing federal personnel vetting. Understanding the reform landscape helps clearance holders navigate what is changing and what the changes mean.

Origins and objectives

TW 2.0 was initiated to address chronic problems in the pre-2019 clearance system:

• Massive backlogs (peaking at 725,000+ cases pending in 2018)
• Processing times averaging 250+ days for TS clearances
• Inconsistent reciprocity between agencies
• Periodic reinvestigation cycles producing outdated information between reviews
• Fragmented IT systems (e-QIP, JPAS, SWFT, legacy agency systems)

TW 2.0 objectives:

• Unified policy across DoD, IC, and civilian agencies
• Continuous vetting replacing periodic reinvestigations
• Streamlined reciprocity — "clear once, trusted everywhere"
• Modernized IT platform (NBIS) replacing legacy systems
• Consolidated investigation tiers (five tiers to three)
• Modernized adjudication standards

Key implementation milestones

TW 2.0 has progressed through several major milestones:

• 2019 — E.O. 13869 transferred background investigation responsibility from OPM to DoD
• October 1, 2019 — DCSA stood up, absorbing NBIB
• 2020-2023 — Continuous Vetting expanded across DoD, IC, and civilian agencies
• October 2023 — eApp became primary tool for initiating investigations
• December 2024 — All customer agencies transitioned to NBIS eApp
• Early 2026 — 3.8M+ cleared personnel enrolled in continuous vetting
• FY 2027 (projected) — Major NBIS development completion

NBIS — National Background Investigation Services

NBIS is the IT platform supporting TW 2.0. NBIS consolidates functions previously spread across:

• e-QIP (application form) — now replaced by eApp
• JPAS (Joint Personnel Adjudication System) — legacy DoD adjudication system
• SWFT (Secure Web Fingerprint Transmission)
• PSS (Personnel Security System) — DCSA adjudication platform
• Various agency-specific systems

NBIS provides an Individual Experience Portal (IEP) that allows cleared individuals to track case status, self-report information required under SEAD 3, and communicate with DCSA. As of March 2026, the IEP Status Tracker provides real-time visibility into case progress.

Continuous Vetting expansion

Continuous Vetting is the most impactful TW 2.0 change for clearance holders. CV operates through automated checks against multiple data sources on an ongoing basis. When an alert is generated (e.g., arrest, significant financial event, foreign travel), the agency security office reviews and may take action. CV enrollment:

• 2020-2022 — CV expanded across DoD military and civilian personnel
• 2023-2024 — Expansion to IC and civilian agency clearance holders
• Early 2026 — 3.8M+ cleared personnel enrolled
• Future — Expansion to non-sensitive public trust positions

For complete coverage of CV mechanics and self-reporting obligations, see Workplace Topic 35 on Continuous Vetting.

Position designation reform

Position designation — the process by which agencies determine the risk level and sensitivity of each position — is governed by 5 CFR Part 731 (for suitability) and 5 CFR Part 732 (for national security positions). Agencies use the OPM Position Designation Tool to assign appropriate tiers. Under TW 2.0, position designation is being standardized and linked directly to investigation tier requirements.

Implementation variability

While policy is unified, implementation varies across agencies:

• Some agencies have embraced automation and data-driven adjudication
• Others remain anchored to legacy workflows and conservative interpretations
• Contractor-focused agencies may lag federal civilian implementation
• Small agencies may rely entirely on DCSA services while larger agencies maintain internal capacity

This variability means an employee's experience with clearance processing depends significantly on the specific agency and position.

Section VIII Frequently asked questions