diff --git a/app/controllers/admin/admins_controller.rb b/app/controllers/admin/admins_controller.rb
index 10cadf06f0..0120049cf0 100644
--- a/app/controllers/admin/admins_controller.rb
+++ b/app/controllers/admin/admins_controller.rb
@@ -1,5 +1,10 @@
 class Admin::AdminsController < Admin::UsersController
   before_action :find_resource, except: [:index, :new, :create, :login_as_assessor, :login_as_user]
+
+  expose(:collaborators) do
+    nil
+  end
+
   def index
     params[:search] ||= AdminSearch::DEFAULT_SEARCH
     params[:search].permit!
diff --git a/app/controllers/admin/assessors_controller.rb b/app/controllers/admin/assessors_controller.rb
index b232f3ddf1..35720c3f2f 100644
--- a/app/controllers/admin/assessors_controller.rb
+++ b/app/controllers/admin/assessors_controller.rb
@@ -15,6 +15,10 @@ class Admin::AssessorsController < Admin::UsersController
       :bulk_deactivate_dt,
     ]
 
+  expose(:collaborators) do
+    nil
+  end
+
   def index
     params[:search] ||= AssessorSearch::DEFAULT_SEARCH
     params[:search].permit!
diff --git a/app/controllers/admin/form_answers/collaborators_controller.rb b/app/controllers/admin/form_answers/collaborators_controller.rb
deleted file mode 100644
index e78bf2536a..0000000000
--- a/app/controllers/admin/form_answers/collaborators_controller.rb
+++ /dev/null
@@ -1,51 +0,0 @@
-class Admin::FormAnswers::CollaboratorsController < Admin::BaseController
-  expose(:form_answer) do
-    FormAnswer.find(params[:form_answer_id])
-  end
-
-  expose(:user) do
-    User.find(params[:user_id])
-  end
-
-  expose(:search_users) do
-    AdminActions::SearchCollaboratorCandidates.new(
-      form_answer,
-      search_params,
-    )
-  end
-
-  expose(:add_collaborator_interactor) do
-    AdminActions::AddCollaborator.new(
-      form_answer,
-      user,
-    )
-  end
-
-  expose(:candidates) do
-    search_users.candidates
-  end
-
-  def search
-    authorize form_answer, :can_add_collaborators_to_application?
-
-    if search_users.valid?
-      search_users.run
-    end
-  end
-
-  def create
-    authorize form_answer, :can_add_collaborators_to_application?
-
-    add_collaborator_interactor.run
-  end
-
-  private
-
-  def search_params
-    if params[:search].present?
-      params.require(:search).permit(
-        :query,
-      )
-    end
-  end
-end
diff --git a/app/controllers/admin/judges_controller.rb b/app/controllers/admin/judges_controller.rb
index 558eeba3a4..d0c1df7299 100644
--- a/app/controllers/admin/judges_controller.rb
+++ b/app/controllers/admin/judges_controller.rb
@@ -1,4 +1,8 @@
 class Admin::JudgesController < Admin::UsersController
+  expose(:collaborators) do
+    nil
+  end
+
   def index
     params[:search] ||= JudgeSearch::DEFAULT_SEARCH
     params[:search].permit!
diff --git a/app/controllers/admin/users/collaborators_controller.rb b/app/controllers/admin/users/collaborators_controller.rb
new file mode 100644
index 0000000000..90226c958a
--- /dev/null
+++ b/app/controllers/admin/users/collaborators_controller.rb
@@ -0,0 +1,52 @@
+class Admin::Users::CollaboratorsController < Admin::BaseController
+  expose(:user) do
+    User.find(params[:user_id])
+  end
+
+  expose(:collaborator) do
+    User.find(params[:collaborator_id])
+  end
+
+  expose(:search_users) do
+    AdminActions::SearchCollaboratorCandidates.new(existing_collaborators: user.account.users, params: search_params)
+  end
+
+  expose(:add_collaborator_interactor) do
+    AdminActions::AddCollaborator.new(account: user.account, collaborator:, params: create_params)
+  end
+
+  expose(:candidates) do
+    search_users.candidates
+  end
+
+  def search
+    authorize user, :can_add_collaborators_to_account?
+    search_users.run if search_users.valid?
+  end
+
+  def create
+    authorize user, :can_add_collaborators_to_account?
+
+    add_collaborator_interactor.run.tap do |result|
+      if result.success?
+        redirect_to edit_admin_user_path(user), notice: "#{collaborator.email} successfully added to Collaborators!"
+      else
+        redirect_to edit_admin_user_path(user), notice: "#{collaborator.email} could not be added to Collaborators: #{result.error_messages}"
+      end
+    end
+  end
+
+  private
+
+  def create_params
+    params.require(:user).permit(:transfer_form_answers, :new_owner_id, :role).tap do |p|
+      p[:transfer_form_answers] = ActiveModel::Type::Boolean.new.cast(p[:transfer_form_answers])
+    end
+  end
+
+  def search_params
+    return if params[:search].blank?
+
+    params.require(:search).permit(:query)
+  end
+end
diff --git a/app/controllers/admin/users_controller.rb b/app/controllers/admin/users_controller.rb
index 699a28d68d..2ececa26b8 100644
--- a/app/controllers/admin/users_controller.rb
+++ b/app/controllers/admin/users_controller.rb
@@ -1,6 +1,10 @@
 class Admin::UsersController < Admin::BaseController
   before_action :find_resource, except: [:index, :new, :create]
 
+  expose(:collaborators) do
+    @resource.account.collaborators_without(@resource)
+  end
+
   def index
     params[:search] ||= UserSearch::DEFAULT_SEARCH
     params[:search].permit!
diff --git a/app/interactors/admin_actions/add_collaborator.rb b/app/interactors/admin_actions/add_collaborator.rb
index 99a6d37735..3e54fea88e 100644
--- a/app/interactors/admin_actions/add_collaborator.rb
+++ b/app/interactors/admin_actions/add_collaborator.rb
@@ -1,20 +1,24 @@
 module AdminActions
   class AddCollaborator
-    attr_reader :form_answer,
-      :user,
-      :success,
-      :errors
+    attr_reader :account, :role, :transfer_form_answers, :new_owner_id, :collaborator, :success, :errors
 
-    def initialize(form_answer, user)
-      @form_answer = form_answer
-      @user = user
+    def initialize(account:, collaborator:, params:, existing_account: collaborator.account)
+      @account = account
+      @collaborator = collaborator
+      @existing_account = existing_account
+      @role = params.fetch(:role, "regular")
+      @transfer_form_answers = params.fetch(:transfer_form_answers, false)
+      @new_owner_id = params.fetch(:new_owner_id, nil)
+      @errors = []
     end
 
     def run
-      if user.can_be_added_to_collaborators_to_another_account?
-        persist!
+      if account_will_be_orphaned?
+        @errors << "User account has active users, ownership of the account must be transferred"
+      elsif progressed_form_answers_will_be_orphaned?
+        @errors << "User has applications in progress, and there are no other users on the account to transfer them to"
       else
-        @errors = "can't be added as linked with another account!"
+        persist!
       end
 
       self
@@ -24,17 +28,83 @@ def success?
       @success.present?
     end
 
+    def error_messages
+      @errors.join(", ")
+    end
+
     private
 
     def persist!
-      user.role = "regular"
-      user.account = form_answer.account
-
-      if user.save
+      ActiveRecord::Base.transaction do
+        transfer_collaborator!
+        transfer_ownership!
+        handle_form_answers!
+        delete_existing_account!
         @success = true
-      else
-        @errors = user.errors.full_messages.join(", ")
       end
+    rescue ActiveRecord::RecordInvalid => e
+      @errors << e.message
+    end
+
+    def existing_account_has_other_collaborators?
+      return unless @existing_account
+
+      @existing_account.collaborators_without(collaborator).any?
+    end
+
+    def account_will_be_orphaned?
+      collaborator_is_owner? && existing_account_has_other_collaborators? && new_owner_id.blank?
+    end
+
+    def collaborator_is_owner?
+      return unless @existing_account
+
+      @existing_account.owner == collaborator
+    end
+
+    def progressed_form_answers_will_be_orphaned?
+      keep_form_answers_on_original_account? && progressed_form_answers? && !existing_account_has_other_collaborators?
+    end
+
+    def progressed_form_answers?
+      collaborator.form_answers.touched.any?
+    end
+
+    def transfer_form_answers?
+      transfer_form_answers
+    end
+
+    def keep_form_answers_on_original_account?
+      !transfer_form_answers?
+    end
+
+    def handle_form_answers!
+      return unless @collaborator.form_answers.any?
+
+      if transfer_form_answers?
+        @collaborator.form_answers.each { |f| f.update!(account: @account) }
+      elsif existing_account_has_other_collaborators?
+        @collaborator.form_answers.each { |f| f.update!(user: @existing_account.owner) }
+      elsif !progressed_form_answers?
+        @collaborator.form_answers.each(&:destroy!)
+      end
+    end
+
+    def transfer_ownership!
+      return unless @new_owner_id
+
+      @existing_account.update!(owner_id: @new_owner_id)
+    end
+
+    def transfer_collaborator!
+      collaborator.update!(role: role, account: account)
+    end
+
+    def delete_existing_account!
+      return unless @existing_account
+      return if existing_account_has_other_collaborators?
+
+      @existing_account.destroy!
     end
   end
 end
diff --git a/app/interactors/admin_actions/search_collaborator_candidates.rb b/app/interactors/admin_actions/search_collaborator_candidates.rb
index 766adb27c2..4a41816b17 100644
--- a/app/interactors/admin_actions/search_collaborator_candidates.rb
+++ b/app/interactors/admin_actions/search_collaborator_candidates.rb
@@ -1,17 +1,10 @@
 module AdminActions
   class SearchCollaboratorCandidates
-    attr_accessor :form_answer,
-      :account,
-      :existing_collaborators,
-      :candidates,
-      :query,
-      :error
+    attr_accessor :account, :existing_collaborators, :candidates, :query, :error
 
-    def initialize(form_answer, query = nil)
-      @query = query[:query]
-      @form_answer = form_answer
-      @account = form_answer.account
-      @existing_collaborators = account.users
+    def initialize(existing_collaborators:, params: {})
+      @query = params[:query]
+      @existing_collaborators = existing_collaborators
     end
 
     def run
diff --git a/app/models/form_answer.rb b/app/models/form_answer.rb
index 7347dfd5e1..fd5e556cd1 100644
--- a/app/models/form_answer.rb
+++ b/app/models/form_answer.rb
@@ -190,6 +190,12 @@ def secondary
   scope :vocf_free, -> { where(award_type: %w[mobility development]) }
   scope :provided_estimates, -> { where("document #>> '{product_estimated_figures}' = 'yes'") }
 
+  scope :touched, -> {
+    joins("LEFT JOIN eligibilities ON eligibilities.form_answer_id = form_answers.id")
+      .where("eligibilities.id IS NOT NULL AND eligibilities.type = form_answers.award_type AND eligibilities.answers::jsonb <> '{}'::jsonb")
+      .or(where("(document::jsonb - 'organization_name' - 'company_name') <> '{}'::jsonb"))
+  }
+
   # callbacks
   before_save :set_award_year, unless: :award_year
   before_save :set_urn
@@ -326,13 +332,16 @@ def head_of_business
   end
 
   def company_or_nominee_from_document
-    comp_attr = promotion? ? "organization_name" : "company_name"
     name = document[comp_attr]
     name = nominee_full_name_from_document if promotion? && name.blank?
     name = name.try(:strip)
     name.presence
   end
 
+  def comp_attr
+    promotion? ? "organization_name" : "company_name"
+  end
+
   def nominee_full_name_from_document
     "#{document["nominee_info_first_name"]} #{document["nominee_info_last_name"]}".strip
   end
diff --git a/app/models/user.rb b/app/models/user.rb
index 2e946b64d0..80919aec7a 100644
--- a/app/models/user.rb
+++ b/app/models/user.rb
@@ -142,14 +142,6 @@ def reset_password_period_valid?
     end
   end
 
-  def can_be_added_to_collaborators_to_another_account?
-    account.blank? || (
-      account.present? &&
-      form_answers.blank? &&
-      account.form_answers.blank?
-    )
-  end
-
   def new_member?
     created_at > 3.days.ago
   end
diff --git a/app/policies/form_answer_policy.rb b/app/policies/form_answer_policy.rb
index d64ea16eaf..4786e0e8f3 100644
--- a/app/policies/form_answer_policy.rb
+++ b/app/policies/form_answer_policy.rb
@@ -135,10 +135,6 @@ def can_download_original_pdf_of_application_before_deadline?
       record.pdf_version.present?
   end
 
-  def can_add_collaborators_to_application?
-    admin?
-  end
-
   private
 
   def audit_certificate_available?
diff --git a/app/policies/user_policy.rb b/app/policies/user_policy.rb
index 447b9822fb..d95c723ffb 100644
--- a/app/policies/user_policy.rb
+++ b/app/policies/user_policy.rb
@@ -1,5 +1,5 @@
 class UserPolicy < ApplicationPolicy
-  %w[index? update? create? show? new?].each do |method|
+  %w[index? update? create? show? new? can_add_collaborators_to_account?].each do |method|
     define_method method do
       admin?
     end
diff --git a/app/views/admin/form_answers/collaborators/_search_results.html.slim b/app/views/admin/form_answers/collaborators/_search_results.html.slim
deleted file mode 100644
index f3e35fdf55..0000000000
--- a/app/views/admin/form_answers/collaborators/_search_results.html.slim
+++ /dev/null
@@ -1,13 +0,0 @@
-- if candidates.present?
-  - candidates.each do |user|
-    li id="collaborator_candidate_#{user.id}"
-      = link_to "#{user.full_name} (#{user.email})", edit_admin_user_path(user)
-      - if user.can_be_added_to_collaborators_to_another_account?
-        = link_to "Add", admin_form_answer_collaborators_url(form_answer_id: form_answer.id, user_id: user),
-                         remote: true,
-                         method: :post,
-                         class: "pull-right btn btn-default"
-      - else
-        br
-        i.cant_add_to_collaborators_message
-          | can not be added as linked with another account!
diff --git a/app/views/admin/form_answers/collaborators/create.js.slim b/app/views/admin/form_answers/collaborators/create.js.slim
deleted file mode 100644
index e236acd38f..0000000000
--- a/app/views/admin/form_answers/collaborators/create.js.slim
+++ /dev/null
@@ -1,6 +0,0 @@
-- if add_collaborator_interactor.success?
-  | $('.js-collaborators-list').replaceWith("#{j render('list', resource: form_answer)}");
-  | $(".js-admin-search-collaborators-error-box").addClass("hidden");
-  | $("#collaborator_candidate_#{user.id}").remove();
-- else
-  | $(".js-admin-search-collaborators-error-box").text("#{add_collaborator_interactor.errors}").removeClass("hidden");
diff --git a/app/views/admin/form_answers/company_details/_user_accounts.html.slim b/app/views/admin/form_answers/company_details/_user_accounts.html.slim
index bfd565ab09..84a4de18ca 100644
--- a/app/views/admin/form_answers/company_details/_user_accounts.html.slim
+++ b/app/views/admin/form_answers/company_details/_user_accounts.html.slim
@@ -1,8 +1,4 @@
 .form-group
   .form-container
     label.form-label User accounts
-
     = render "admin/form_answers/collaborators/list"
-
-  - if policy(resource).can_add_collaborators_to_application?
-    = render "admin/form_answers/collaborators/form"
diff --git a/app/views/admin/users/_fields_collaborators.html.slim b/app/views/admin/users/_fields_collaborators.html.slim
index 3816ed319f..96d172afd1 100644
--- a/app/views/admin/users/_fields_collaborators.html.slim
+++ b/app/views/admin/users/_fields_collaborators.html.slim
@@ -1,6 +1,4 @@
-/ TODO collaborators new/delete, also the collaborators variable
 - if action_name == "edit"
-  - collaborators = resource.account.collaborators_without(resource)
   - if collaborators.any?
     = render "admin/collaborators/list", collaborators: collaborators
   - else
@@ -11,3 +9,6 @@
             br
             p.p-empty This user has not added any collaborators.
             br
+  
+  - if policy(resource).can_add_collaborators_to_account?
+    = render "admin/users/collaborators/search_form", resource: resource
diff --git a/app/views/admin/users/_form.html.slim b/app/views/admin/users/_form.html.slim
index d527262e36..78d3ec1dcd 100644
--- a/app/views/admin/users/_form.html.slim
+++ b/app/views/admin/users/_form.html.slim
@@ -28,16 +28,6 @@
         .panel-body
           = render "fields_contact_preferences", f: f
 
-    - unless action_name == "new"
-      .panel.panel-default[data-controller="element-focus"]
-        .panel-heading id="section-collaborators-header"
-          h2.panel-title
-            a.collapsed data-toggle="collapse" data-parent="#user-form-panel" href="#section-collaborators" aria-expanded="false" aria-controls="section-collaborators" data-element-focus-target="reveal"
-              ' Collaborators
-        #section-collaborators.section-collaborators.panel-collapse.collapse[aria-labelledby="section-collaborators-header" data-element-scroll-target="accordion"]
-          .panel-body
-            = render "fields_collaborators", f: f, resource: resource
-
     br
     .clearfix
       .pull-right
diff --git a/app/views/admin/form_answers/collaborators/_form.html.slim b/app/views/admin/users/collaborators/_search_form.html.slim
similarity index 84%
rename from app/views/admin/form_answers/collaborators/_form.html.slim
rename to app/views/admin/users/collaborators/_search_form.html.slim
index 3d9bd87279..61b926faed 100644
--- a/app/views/admin/form_answers/collaborators/_form.html.slim
+++ b/app/views/admin/users/collaborators/_search_form.html.slim
@@ -1,5 +1,5 @@
 = simple_form_for :search,
-                  url: search_admin_form_answer_collaborators_url(resource),
+                  url: search_admin_user_collaborators_url(resource),
                   remote: true,
                   method: :get,
                   as: nil,
@@ -10,8 +10,6 @@
 
     .alert.alert-danger.hidden.js-admin-search-collaborators-error-box role="alert"
 
-    ul.list-unstyled.list-actions.hidden.js-admin-search-collaborators-results-box
-
     .form-block
       .row
         .col-md-12
@@ -25,3 +23,5 @@
           .text-right
             = f.submit "Search", class: "btn btn-primary pull-right"
     .clear
+
+ul.list-unstyled.list-actions.hidden.js-admin-search-collaborators-results-box
diff --git a/app/views/admin/users/collaborators/_search_results.html.slim b/app/views/admin/users/collaborators/_search_results.html.slim
new file mode 100644
index 0000000000..d052be58a2
--- /dev/null
+++ b/app/views/admin/users/collaborators/_search_results.html.slim
@@ -0,0 +1,9 @@
+- if candidates.present?
+  - candidates.each do |candidate|
+    li.list-group-item id="user_#{candidate.id}"
+      p.pull-right
+        = link_to "#{candidate.full_name} (#{candidate.email})", edit_admin_user_path(candidate)
+
+      br
+
+      p= render "admin/users/collaborators/transfer_form", collaborator: candidate
diff --git a/app/views/admin/users/collaborators/_transfer_form.html.slim b/app/views/admin/users/collaborators/_transfer_form.html.slim
new file mode 100644
index 0000000000..fb30425444
--- /dev/null
+++ b/app/views/admin/users/collaborators/_transfer_form.html.slim
@@ -0,0 +1,32 @@
+= simple_form_for :user, url: admin_user_collaborators_url(collaborator_id: collaborator.id), method: :post do |f|    
+  - if collaborator&.account.collaborators_without(collaborator).any? && collaborator.account.owner == collaborator
+    .question-group
+      h3= f.label :new_owner_id, { label: "Owner", for: "new_owner_id_#{collaborator.id}" }
+      .row
+        .col-sm-6
+          = f.select :new_owner_id,
+                      collaborator.account.collaborators_without(collaborator).map { |u| [u.email, u.id] },
+                      { include_blank: 'Select New Owner…' },
+                      { class: "form-control", id: "new_owner_id_#{collaborator.id}" }
+
+  .question-group
+    h3= f.label :role, { label: "Role", for: "role_#{collaborator.id}" }
+    .row
+      .col-sm-4
+        = f.select :role,
+                    User::POSSIBLE_ROLES.map { |r| [r.humanize, r] },
+                    { selected: collaborator.role },
+                    { class: "form-control", id: "role_#{collaborator.id}" }
+
+  - if collaborator.form_answers.any?
+    .question-group
+      h3= f.label :transfer_form_answers, { label: "Transfer existing Application/s", for: "transfer_form_answers_#{collaborator.id}" }
+      .row
+        .col-sm-1
+          = f.check_box :transfer_form_answers, value: true, id: "transfer_form_answers_#{collaborator.id}"
+        .col-sm-11
+          .alert.alert-warning
+            p Ticking this box will transfer all applications to the new account. All collaborators on the new account will have access to these applications and the associated information.
+
+  br
+    = f.submit "Transfer", class: "btn btn-secondary"
diff --git a/app/views/admin/form_answers/collaborators/search.js.slim b/app/views/admin/users/collaborators/search.js.slim
similarity index 100%
rename from app/views/admin/form_answers/collaborators/search.js.slim
rename to app/views/admin/users/collaborators/search.js.slim
diff --git a/app/views/admin/users/edit.html.slim b/app/views/admin/users/edit.html.slim
index fb5c4e9ad1..ff353e103e 100644
--- a/app/views/admin/users/edit.html.slim
+++ b/app/views/admin/users/edit.html.slim
@@ -3,3 +3,13 @@
     = "Edit #{controller_name == "users" ? "applicant" : controller_name.singularize}"
 
 = render 'form', resource: @resource
+
+- if collaborators
+  .panel.panel-default[data-controller="element-focus"]
+    .panel-heading id="section-collaborators-header"
+      h2.panel-title
+        a.collapsed data-toggle="collapse" data-parent="#user-form-panel" href="#section-collaborators" aria-expanded="false" aria-controls="section-collaborators" data-element-focus-target="reveal"
+          ' Collaborators
+    #section-collaborators.section-collaborators.panel-collapse.collapse[aria-labelledby="section-collaborators-header" data-element-scroll-target="accordion"]
+      .panel-body
+        = render "fields_collaborators", resource: @resource
diff --git a/config/routes.rb b/config/routes.rb
index dee13d7daf..6e93fb78e0 100644
--- a/config/routes.rb
+++ b/config/routes.rb
@@ -263,6 +263,10 @@
         patch :unlock
         post :scan_via_debounce_api
       end
+
+      resources :collaborators, only: [:create], module: :users do
+        get :search, on: :collection
+      end
     end
 
     resources :collaborator_deletion, only: [:destroy]
@@ -351,9 +355,6 @@
       resources :case_summaries, only: [:index]
       resources :draft_notes, only: [:create, :update]
       resources :review_corp_responsibility, only: [:create]
-      resources :collaborators, only: [:create], module: "form_answers" do
-        get :search, on: :collection
-      end
     end
 
     resource :settings, only: [:show] do
diff --git a/spec/features/admin/form_answers/collaborators_spec.rb b/spec/features/admin/form_answers/collaborators_spec.rb
deleted file mode 100644
index e4a2e59521..0000000000
--- a/spec/features/admin/form_answers/collaborators_spec.rb
+++ /dev/null
@@ -1,81 +0,0 @@
-require "rails_helper"
-
-describe "Collaborators", '
-As a an Admin
-I want to be able to add collaborators to any account
-So that they can collaborate applications
-' do
-  include ActiveJob::TestHelper
-
-  let!(:admin) { create(:admin) }
-
-  let!(:form_answer) do
-    create :form_answer,
-      :innovation,
-      :submitted
-  end
-
-  let!(:account) do
-    form_answer.account
-  end
-
-  before do
-    login_admin admin
-    visit admin_form_answer_path(form_answer)
-  end
-
-  describe "Add new Collaborator" do
-    describe "Invalid Attempts", js: true do
-      describe "Attempt to add person, which is already associated with another account which has application" do
-        let!(:user_associated_with_another_account) do
-          create :user,
-            :completed_profile,
-            first_name: "Applicant with account",
-            role: "account_admin"
-        end
-
-        let!(:another_form_answer) do
-          create :form_answer,
-            :innovation,
-            :submitted,
-            user: user_associated_with_another_account
-        end
-
-        it "can't add" do
-          find("a[aria-controls='section-company-details']").click
-
-          within(".admin-search-collaborators-form") do
-            fill_in "search[query]", with: "plicant with acc"
-            first("input[type='submit']").click
-
-            within(".js-admin-search-collaborators-results-box") do
-              expect_to_see(user_associated_with_another_account.first_name)
-              expect_to_see("can not be added as linked with another account!")
-              expect(page).to have_no_link("Add")
-            end
-          end
-        end
-      end
-    end
-
-    describe "Success Add to Collaborators", js: true do
-      let(:email) { generate(:email) }
-      let!(:user) { create(:user, email: email) }
-
-      it "should add user to collaborators with regular role" do
-        find("a[aria-controls='section-company-details']").click
-
-        within(".admin-search-collaborators-form") do
-          fill_in "search[query]", with: email.to_s[2..-2]
-          first("input[type='submit']").click
-
-          within(".js-admin-search-collaborators-results-box") do
-            expect_to_see(user.email)
-            expect_to_see_no("can not be added as linked with another account!")
-            expect(page).to have_link("Add")
-          end
-        end
-      end
-    end
-  end
-end
diff --git a/spec/features/admin/form_answers/company_details_fulfilling_spec.rb b/spec/features/admin/form_answers/company_details_fulfilling_spec.rb
index 42de7cfff3..0b5027257e 100644
--- a/spec/features/admin/form_answers/company_details_fulfilling_spec.rb
+++ b/spec/features/admin/form_answers/company_details_fulfilling_spec.rb
@@ -32,7 +32,7 @@
 
   it "can see the edit buttons" do
     within ".company-details-forms" do
-      expect(page).to have_selector("input[type='submit']", count: 13)
+      expect(page).to have_selector("input[type='submit']", count: 12)
     end
   end
 end
diff --git a/spec/features/admin/users/collaborators_spec.rb b/spec/features/admin/users/collaborators_spec.rb
new file mode 100644
index 0000000000..a65bfd762e
--- /dev/null
+++ b/spec/features/admin/users/collaborators_spec.rb
@@ -0,0 +1,155 @@
+require "rails_helper"
+
+describe "Collaborators", '
+As a an Admin
+I want to be able to add collaborators to any account
+So that they can collaborate applications
+', js: true do
+  include ActiveJob::TestHelper
+
+  let!(:admin) { create(:admin) }
+  let(:existing_user) { create(:user, :completed_profile) }
+
+  before do
+    login_admin admin
+    visit edit_admin_user_path(existing_user)
+  end
+
+  describe "Add Collaborator" do
+    let(:email) { generate(:email) }
+    let!(:user) { create(:user, email: email) }
+    let(:form_answers) { [] }
+
+    context "with the Account Admin role" do
+      let(:role) { "Account admin" }
+
+      before do
+        search_for_user(email)
+        transfer_user(role)
+      end
+
+      it "should transfer the user with the correct role" do
+        expect(page).to have_content("#{email} successfully added to Collaborators!")
+        expect(page).to have_content("#{email} successfully added to Collaborators!")
+        login_as existing_user
+        click_link "Collaborators"
+        expect_to_see_user(user, role: "Admin and collaborator")
+      end
+    end
+
+    context "with the regular role" do
+      let(:role) { "Regular" }
+
+      before do
+        search_for_user(email)
+        transfer_user(role)
+      end
+
+      it "should transfer the user with the correct role" do
+        expect(page).to have_content("#{email} successfully added to Collaborators!")
+        expect(page).to have_content("#{email} successfully added to Collaborators!")
+        login_as existing_user
+        click_link "Collaborators"
+        expect_to_see_user(user, role: "Collaborator only")
+      end
+    end
+
+    context "with form_answers" do
+      let!(:form_answers) { create_list(:form_answer, 3, user: user, account: user.account) }
+      let(:role) { "Account admin" }
+      context "when transferring form_answers" do
+        before do
+          search_for_user(email)
+          transfer_user(role, transfer_form_answers: true)
+        end
+
+        it "should transfer the form_answers and user with the correct role" do
+          expect(page).to have_content("#{email} successfully added to Collaborators!")
+          login_as existing_user, scope: :user
+          click_link "Collaborators"
+          expect_to_see_user(user, role: "Admin and collaborator")
+          expect(existing_user.account.reload.form_answers).to eq(form_answers)
+          expect(user.reload.form_answers).to eq(form_answers)
+        end
+      end
+
+      context "when not transferring form_answers" do
+        context "with no other users" do
+          before do
+            search_for_user(email)
+            transfer_user(role, transfer_form_answers: false)
+          end
+
+          it "should transfer the user with the correct role" do
+            expect(page).to have_content("#{email} successfully added to Collaborators!")
+            login_as existing_user
+            click_link "Collaborators"
+            expect_to_see_user(user, role: "Admin and collaborator")
+            expect(existing_user.account.reload.form_answers).to eq([])
+            expect(user.reload.form_answers).to eq([])
+          end
+        end
+
+        context "with other users" do
+          let!(:other_user) { create(:user, :completed_profile, account: user.account) }
+
+          before do
+            search_for_user(email)
+            transfer_user(role, transfer_form_answers: false, new_owner: other_user)
+          end
+
+          it "should transfer the user with the correct role" do
+            expect(page).to have_content("#{email} successfully added to Collaborators!")
+            login_as existing_user
+            click_link "Collaborators"
+            expect_to_see_user(user, role: "Admin and collaborator")
+            expect(existing_user.account.reload.form_answers).to eq([])
+            expect(user.reload.form_answers).to eq([])
+            expect(other_user.reload.form_answers).to eq(form_answers)
+          end
+        end
+
+        context "when the form_answers are in progress" do
+          let!(:form_answers) { create_list(:form_answer, 3, :development, user: user, account: user.account) }
+
+          before do
+            search_for_user(email)
+            transfer_user(role, transfer_form_answers: false)
+          end
+
+          it "should display an error" do
+            expect(page).to have_content(
+              "#{user.email} could not be added to Collaborators: User has applications in progress, and there are no other users on the account to transfer them to",
+            )
+          end
+        end
+      end
+    end
+  end
+
+  def expect_to_see_user(user, role:)
+    within "#user_#{user.id}" do
+      expect(page).to have_content(user.full_name)
+      expect(page).to have_content(role)
+    end
+  end
+
+  def transfer_user(role, transfer_form_answers: false, new_owner: nil)
+    within(".js-admin-search-collaborators-results-box") do
+      select role, from: "user[role]"
+      select new_owner.email, from: "user[new_owner_id]" if new_owner
+      check "user[transfer_form_answers]" if transfer_form_answers
+
+      click_button "Transfer"
+    end
+  end
+
+  def search_for_user(email)
+    find("a[aria-controls='section-collaborators']").click
+
+    within(".admin-search-collaborators-form") do
+      fill_in "search[query]", with: email.to_s[2..-2]
+      first("input[type='submit']").click
+    end
+  end
+end
diff --git a/spec/interactors/admin_actions/add_collaborator_spec.rb b/spec/interactors/admin_actions/add_collaborator_spec.rb
new file mode 100644
index 0000000000..dba2ec71f0
--- /dev/null
+++ b/spec/interactors/admin_actions/add_collaborator_spec.rb
@@ -0,0 +1,197 @@
+require "rails_helper"
+
+describe AdminActions::AddCollaborator do
+  describe "#run" do
+    let(:result) { described_class.new(account:, collaborator:, params:, existing_account:).run }
+    let(:account) { create(:account) }
+    let(:collaborator) { create(:user, form_answers: form_answers, account: collaborator_account, role: "regular") }
+    let(:existing_account) { collaborator.account }
+    let(:collaborator_account) { create(:account) }
+    let(:collaborator_account_other_users) { [] }
+    let(:form_answers) { [] }
+    let(:params) { { role: role, transfer_form_answers: transfer_form_answers, new_owner_id: new_owner_id } }
+    let(:role) { "account_admin" }
+    let(:new_owner_id) { nil }
+
+    context "when transfer_form_answers is true" do
+      let(:transfer_form_answers) { true }
+
+      context "when the collaborator has form_answers" do
+        let(:form_answers) { create_list(:form_answer, 3) }
+
+        context "when the collaborator_account has no other users" do
+          it "transfers the collaborator and form_answers, and the collaborator account is deleted" do
+            expect(result).to be_success
+            expect(collaborator.account).to eq(account)
+            expect(collaborator.role).to eq(role)
+            expect { collaborator_account.reload }.to raise_error(ActiveRecord::RecordNotFound)
+            form_answers.each { |f| expect(f.account).to eq(account) }
+          end
+        end
+
+        context "when the collaborator_account has other users" do
+          let!(:collaborator_account_other_users) { create_list(:user, 2, account: collaborator_account) }
+          let(:new_owner_id) { collaborator_account_other_users.first.id }
+
+          it "transfers the collaborator and form_answers, and ownership of the collaborator account is transferred" do
+            expect(result).to be_success
+            expect(collaborator.account).to eq(account)
+            expect(collaborator.role).to eq(role)
+            expect(collaborator_account.owner).to eq(collaborator_account_other_users.first)
+            expect(collaborator_account.users).not_to include(collaborator)
+            form_answers.each { |f| expect(f.account).to eq(account) }
+          end
+        end
+      end
+    end
+
+    context "when transfer_form_answers is false" do
+      let(:transfer_form_answers) { false }
+
+      context "when the existing_account is nil" do
+        let(:existing_account) { nil }
+
+        it "transfers the collaborator" do
+          expect(result).to be_success
+          expect(collaborator.account).to eq(account)
+          expect(collaborator.role).to eq(role)
+        end
+      end
+
+      context "when the collaborator does not have form_answers" do
+        let(:form_answers) { [] }
+
+        it "transfers the collaborator and the collaborator account is deleted" do
+          expect(result).to be_success
+          expect(collaborator.account).to eq(account)
+          expect(collaborator.role).to eq(role)
+          expect { collaborator_account.reload }.to raise_error(ActiveRecord::RecordNotFound)
+        end
+
+        context "when the collaborator is the owner of the account" do
+          before do
+            collaborator_account.owner = collaborator
+            collaborator_account.save
+          end
+
+          it "transfers the collaborator and the collaborator account is deleted" do
+            expect(result).to be_success
+            expect(collaborator.account).to eq(account)
+            expect(collaborator.role).to eq(role)
+            expect { collaborator_account.reload }.to raise_error(ActiveRecord::RecordNotFound)
+          end
+        end
+
+        context "when the collaborator_account has other users" do
+          let!(:collaborator_account_other_users) { create_list(:user, 2, account: collaborator_account) }
+
+          it "transfers the collaborator and the collaborator account is not deleted" do
+            expect(result).to be_success
+            expect(collaborator.account).to eq(account)
+            expect(collaborator.role).to eq(role)
+            expect(collaborator_account.users).to eq(collaborator_account_other_users)
+          end
+
+          context "when the collaborator is the owner of the account" do
+            let(:new_owner_id) { collaborator_account_other_users.first.id }
+
+            before do
+              collaborator_account.owner = collaborator
+              collaborator_account.save
+            end
+
+            it "transfers the collaborator and ownership of the collaborator_account" do
+              expect(result).to be_success
+              expect(collaborator.account).to eq(account)
+              expect(collaborator.role).to eq(role)
+              expect(collaborator_account.owner).to eq(collaborator_account_other_users.first)
+              expect(collaborator_account.users).not_to include(collaborator)
+            end
+
+            context "when the new_owner_id is not specified" do
+              let(:new_owner_id) { nil }
+
+              it "is not a success" do
+                expect(result).not_to be_success
+                expect(result.error_messages)
+                  .to eq("User account has active users, ownership of the account must be transferred")
+                expect(collaborator.account).to eq(collaborator_account)
+              end
+            end
+
+            context "when an invalid new_owner_id is specified" do
+              let(:new_owner_id) { 1000 }
+
+              it "is not a success" do
+                expect(result).not_to be_success
+                expect(result.error_messages)
+                  .to eq("Validation failed: Owner Owner is empty - it is a required field and must be filled in")
+                expect(collaborator.reload.account).to eq(collaborator_account)
+              end
+            end
+          end
+        end
+      end
+      context "when the collaborator has form_answers" do
+        let(:form_answers) { create_list(:form_answer, 3) }
+
+        context "when the collaborator_account has no other users" do
+          it "transfers the collaborator, and the collaborator account and form_answers are deleted" do
+            expect(result).to be_success
+            expect(collaborator.account).to eq(account)
+            expect(collaborator.role).to eq(role)
+            expect { collaborator_account.reload }.to raise_error(ActiveRecord::RecordNotFound)
+            form_answers.each { |f| expect { f.reload }.to raise_error(ActiveRecord::RecordNotFound) }
+          end
+        end
+
+        context "when the form_answers are in progress" do
+          let(:form_answers) { create_list(:form_answer, 3, :development) }
+
+          context "when the collaborator_account has other users" do
+            let!(:collaborator_account_other_users) { create_list(:user, 2, account: collaborator_account) }
+
+            context "when the new_owner_id is specified" do
+              let(:new_owner_id) { collaborator_account_other_users.first.id }
+
+              it "transfers the collaborator and ownership of the form_answers to the new owner" do
+                expect(result).to be_success
+                expect(collaborator.account).to eq(account)
+                expect(collaborator.role).to eq(role)
+                expect(collaborator_account.owner).to eq(collaborator_account_other_users.first)
+                form_answers.each { |f| expect(f.user).to eq(collaborator_account_other_users.first) }
+                expect(collaborator_account.users).not_to include(collaborator)
+              end
+            end
+
+            context "when the new_owner_id is not specified" do
+              let(:new_owner_id) { nil }
+
+              before do
+                collaborator_account.owner = collaborator_account_other_users.first
+                collaborator_account.save
+              end
+
+              it "transfers the collaborator and ownership of the form_answers to the existing owner" do
+                expect(result).to be_success
+                expect(collaborator.account).to eq(account)
+                expect(collaborator.role).to eq(role)
+                expect(collaborator_account.users).not_to include(collaborator)
+                form_answers.each { |f| expect(f.user).to eq(collaborator_account_other_users.first) }
+              end
+            end
+          end
+
+          context "when the collaborator_account has no other users" do
+            it "is not a success" do
+              expect(result).not_to be_success
+              expect(result.error_messages)
+                .to eq("User has applications in progress, and there are no other users on the account to transfer them to")
+              expect(collaborator.account).to eq(collaborator_account)
+            end
+          end
+        end
+      end
+    end
+  end
+end
diff --git a/spec/models/form_answer_spec.rb b/spec/models/form_answer_spec.rb
index 455d3eb7e9..14bba70765 100644
--- a/spec/models/form_answer_spec.rb
+++ b/spec/models/form_answer_spec.rb
@@ -9,6 +9,27 @@
       target = FormAnswer.submitted.where("feedback_hard_copy_generated" => true).to_sql
       expect(target).to eq FormAnswer.hard_copy_generated("feedback").to_sql
     end
+
+    describe ".touched" do
+      let!(:eligibility_with_answers) { create(:eligibility, answers: { anything: :something }, type: :trade) }
+      let!(:form_answer_with_touched_document) { create(:form_answer, document: { anything: :something }) }
+
+      before do
+        create(:form_answer, document: {})
+        create(:form_answer, document: { organization_name: :anything })
+        create(:form_answer, document: { company_name: :anything })
+        create(:eligibility, answers: {}, type: :trade)
+      end
+
+      it "returns only touched form_answers" do
+        expect(FormAnswer.touched).to match_array(
+          [
+            eligibility_with_answers.form_answer,
+            form_answer_with_touched_document,
+          ],
+        )
+      end
+    end
   end
 
   describe "#unsuccessful?" do