diff --git a/benefits/templates/admin/agency-base.html b/benefits/templates/admin/agency-base.html
index 69768a3727..fc4a982e67 100644
--- a/benefits/templates/admin/agency-base.html
+++ b/benefits/templates/admin/agency-base.html
@@ -28,30 +28,7 @@
{{ site_header }}
{% endblock branding %}
{% block usertools %}
- {% if has_permission %}
-
- {% endif %}
+ {% include "admin/includes/usertools.html" %}
{% endblock usertools %}
{% block coltype %}
diff --git a/benefits/templates/admin/includes/usertools.html b/benefits/templates/admin/includes/usertools.html
new file mode 100644
index 0000000000..b0ff961a32
--- /dev/null
+++ b/benefits/templates/admin/includes/usertools.html
@@ -0,0 +1,26 @@
+{% load i18n static %}
+
+{% if has_permission %}
+
+{% endif %}