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President Donald Trump’s hiring freeze will last only as long as it takes his administration to come up with an alternative attrition plan, according to a memorandum released by the White House Monday, and could provide broad exemptions for agency leaders.

Trump said his hiring moratorium would “be applied across the board in the executive branch” and apply to any positions vacant as of Jan. 22. It would bar agencies from creating new positions. Agency heads can exempt positions they deem “necessary to meet national security or public safety responsibilities.”