diff --git a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/ExtensionDefinitionGenerator.java b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/ExtensionDefinitionGenerator.java
index 175b5d3fe..39b6d70d0 100644
--- a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/ExtensionDefinitionGenerator.java
+++ b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/ExtensionDefinitionGenerator.java
@@ -387,7 +387,7 @@ public class ExtensionDefinitionGenerator {
 
   private List<StructureDefinition> loadSource() throws IOException, FHIRException {
     List<StructureDefinition> list = new ArrayList<>();
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     NpmPackage npm = pcm.loadPackage("hl7.fhir.core", sourceVersion.toCode());
     if (sourceVersion == FHIRVersion._4_0_0)
       context = SimpleWorkerContext.fromPackage(npm);
diff --git a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/analytics/PackageVisitor.java b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/analytics/PackageVisitor.java
index 1881e4553..a457f4f49 100644
--- a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/analytics/PackageVisitor.java
+++ b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/analytics/PackageVisitor.java
@@ -109,7 +109,7 @@ public class PackageVisitor {
   public void visitPackages() throws IOException, ParserConfigurationException, SAXException {
     System.out.println("Finding packages");
     pc = new PackageClient(PackageServer.primaryServer());
-    pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     
     Map<String, String> cpidMap = getAllCIPackages();
     Set<String> cpidSet = new HashSet<>();
diff --git a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/OIDBasedValueSetImporter.java b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/OIDBasedValueSetImporter.java
index c0147d688..9a57654c8 100644
--- a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/OIDBasedValueSetImporter.java
+++ b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/OIDBasedValueSetImporter.java
@@ -16,7 +16,7 @@ public class OIDBasedValueSetImporter {
   protected IWorkerContext context;
 
   protected void init() throws FHIRException, IOException {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     NpmPackage npm = pcm.loadPackage("hl7.fhir.r5.core", "current");
     SimpleWorkerContext context = new SimpleWorkerContext.SimpleWorkerContextBuilder().withAllowLoadingDuplicates(true).fromPackage(npm);
     context.loadFromPackage(pcm.loadPackage("hl7.terminology"), null);
diff --git a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/utg/UTGVersionSorter.java b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/utg/UTGVersionSorter.java
index 16410b55b..f006b53ab 100644
--- a/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/utg/UTGVersionSorter.java
+++ b/org.hl7.fhir.convertors/src/main/java/org/hl7/fhir/convertors/misc/utg/UTGVersionSorter.java
@@ -90,7 +90,7 @@ public class UTGVersionSorter {
   private Map<String, CanonicalResource> loadPackageR2(String id) throws IOException {
     Map<String, CanonicalResource> res = new HashMap<>();
     if (pcm == null) {
-      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     }
     System.out.println("Load " + id);
     NpmPackage npm = pcm.loadPackage(id);
@@ -104,7 +104,7 @@ public class UTGVersionSorter {
   private Map<String, CanonicalResource> loadPackageR3(String id) throws IOException {
     Map<String, CanonicalResource> res = new HashMap<>();
     if (pcm == null) {
-      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     }
     System.out.println("Load " + id);
     NpmPackage npm = pcm.loadPackage(id);
@@ -118,7 +118,7 @@ public class UTGVersionSorter {
   private Map<String, CanonicalResource> loadPackageR4(String id) throws IOException {
     Map<String, CanonicalResource> res = new HashMap<>();
     if (pcm == null) {
-      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     }
     System.out.println("Load " + id);
     NpmPackage npm = pcm.loadPackage(id);
diff --git a/org.hl7.fhir.convertors/src/test/java/org/hl7/fhir/convertors/Convertor_Factory_40_50Test.java b/org.hl7.fhir.convertors/src/test/java/org/hl7/fhir/convertors/Convertor_Factory_40_50Test.java
index 72cdbb218..5df805f99 100644
--- a/org.hl7.fhir.convertors/src/test/java/org/hl7/fhir/convertors/Convertor_Factory_40_50Test.java
+++ b/org.hl7.fhir.convertors/src/test/java/org/hl7/fhir/convertors/Convertor_Factory_40_50Test.java
@@ -26,7 +26,7 @@ class Convertor_Factory_40_50Test  {
 
   @BeforeAll
   static public void setUp() throws Exception {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context = TestingUtilities.getWorkerContext(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
   }
 
diff --git a/org.hl7.fhir.core.generator/src/org/hl7/fhir/core/generator/engine/JavaCoreGenerator.java b/org.hl7.fhir.core.generator/src/org/hl7/fhir/core/generator/engine/JavaCoreGenerator.java
index bc12e9f23..afe4cbec6 100644
--- a/org.hl7.fhir.core.generator/src/org/hl7/fhir/core/generator/engine/JavaCoreGenerator.java
+++ b/org.hl7.fhir.core.generator/src/org/hl7/fhir/core/generator/engine/JavaCoreGenerator.java
@@ -75,7 +75,7 @@ public class JavaCoreGenerator {
     Date ddate = new Date();
     String date = config.DATE_FORMAT().format(ddate);
     
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     System.out.println("Cache: "+pcm.getFolder());
     System.out.println("Load hl7.fhir."+pid+".core");
     NpmPackage npm = pcm.loadPackage("hl7.fhir."+pid+".core", version);
diff --git a/org.hl7.fhir.r4/src/main/java/org/hl7/fhir/r4/test/utils/TestingUtilities.java b/org.hl7.fhir.r4/src/main/java/org/hl7/fhir/r4/test/utils/TestingUtilities.java
index d8d3d50ce..3af459ca4 100644
--- a/org.hl7.fhir.r4/src/main/java/org/hl7/fhir/r4/test/utils/TestingUtilities.java
+++ b/org.hl7.fhir.r4/src/main/java/org/hl7/fhir/r4/test/utils/TestingUtilities.java
@@ -81,7 +81,7 @@ public class TestingUtilities {
 	  if (fcontext == null) {
 	    FilesystemPackageCacheManager pcm;
 	    try {
-	      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+	      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
 	      fcontext = SimpleWorkerContext.fromPackage(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
 	      fcontext.setUcumService(new UcumEssenceService(TestingUtilities.resourceNameToFile("ucum", "ucum-essence.xml")));
 	      fcontext.setExpansionProfile(new Parameters());
diff --git a/org.hl7.fhir.r4/src/test/java/org/hl7/fhir/r4/test/CDARoundTripTests.java b/org.hl7.fhir.r4/src/test/java/org/hl7/fhir/r4/test/CDARoundTripTests.java
index 2ea512bd6..621460f1f 100644
--- a/org.hl7.fhir.r4/src/test/java/org/hl7/fhir/r4/test/CDARoundTripTests.java
+++ b/org.hl7.fhir.r4/src/test/java/org/hl7/fhir/r4/test/CDARoundTripTests.java
@@ -30,7 +30,7 @@ public class CDARoundTripTests {
   @BeforeAll
   public void setUp() throws Exception {
     context = new SimpleWorkerContext();
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context.loadFromPackage(pcm.loadPackage("hl7.fhir.core", "current"), null, "StructureDefinition");
     context.loadFromPackage(pcm.loadPackage("hl7.fhir.cda", "current"), null, "StructureDefinition");
   }
diff --git a/org.hl7.fhir.r4b/src/main/java/org/hl7/fhir/r4b/test/utils/TestingUtilities.java b/org.hl7.fhir.r4b/src/main/java/org/hl7/fhir/r4b/test/utils/TestingUtilities.java
index 7caf08c5e..204213e58 100644
--- a/org.hl7.fhir.r4b/src/main/java/org/hl7/fhir/r4b/test/utils/TestingUtilities.java
+++ b/org.hl7.fhir.r4b/src/main/java/org/hl7/fhir/r4b/test/utils/TestingUtilities.java
@@ -23,6 +23,7 @@ import org.hl7.fhir.utilities.TextFile;
 import org.hl7.fhir.utilities.Utilities;
 import org.hl7.fhir.utilities.VersionUtilities;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
 import org.hl7.fhir.utilities.tests.BaseTestingUtilities;
 import org.w3c.dom.Document;
@@ -88,7 +89,7 @@ public class TestingUtilities extends BaseTestingUtilities {
     if (!fcontexts.containsKey(v)) {
       FilesystemPackageCacheManager pcm;
       try {
-        pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+        pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
         IWorkerContext fcontext = SimpleWorkerContext.fromPackage(pcm.loadPackage(VersionUtilities.packageForVersion(version), version));
         fcontext.setUcumService(new UcumEssenceService(TestingUtilities.loadTestResourceStream("ucum", "ucum-essence.xml")));
         fcontext.setExpansionProfile(new Parameters());
diff --git a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/CDARoundTripTests.java b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/CDARoundTripTests.java
index 735eed77c..17d60f62a 100644
--- a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/CDARoundTripTests.java
+++ b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/CDARoundTripTests.java
@@ -26,7 +26,7 @@ public class CDARoundTripTests {
 
 	@BeforeAll
 	public static void setUp() throws Exception {
-	    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+	    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
 		context = SimpleWorkerContext.fromPackage(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
 		fp = new FHIRPathEngine(context);
 
diff --git a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/ParsingTests.java b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/ParsingTests.java
index 14ece402f..89f379ab2 100644
--- a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/ParsingTests.java
+++ b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/ParsingTests.java
@@ -35,7 +35,7 @@ public class ParsingTests {
   }
 
   public static Stream<Arguments> data() throws ParserConfigurationException, IOException, FHIRFormatError, SAXException {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     npm = pcm.loadPackage("hl7.fhir.r4b.examples", "4.3.0");
     List<Arguments> objects = new ArrayList<>();
     List<String> names = npm.list("package");
diff --git a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/SnapShotGenerationTests.java b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/SnapShotGenerationTests.java
index f6e1add70..7b43e03ad 100644
--- a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/SnapShotGenerationTests.java
+++ b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/SnapShotGenerationTests.java
@@ -555,7 +555,7 @@ public class SnapShotGenerationTests {
     pu.setDebug(test.isDebug());
     pu.setIds(test.getSource(), false);
     if (!TestingUtilities.context().hasPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER)) {
-      NpmPackage npm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION).loadPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER);
+      NpmPackage npm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER).loadPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER);
       TestingUtilities.context().loadFromPackage(npm, new TestLoader(new String[]{"StructureDefinition"}), new String[]{"StructureDefinition"});
     }
     pu.setXver(new XVerExtensionManager(TestingUtilities.context()));
diff --git a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/StructureMapUtilitiesTest.java b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/StructureMapUtilitiesTest.java
index 663e1374d..2d505ba83 100644
--- a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/StructureMapUtilitiesTest.java
+++ b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/StructureMapUtilitiesTest.java
@@ -24,7 +24,7 @@ public class StructureMapUtilitiesTest implements ITransformerServices {
 
   @BeforeAll
   static public void setUp() throws Exception {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context = SimpleWorkerContext.fromPackage(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
   }
 
diff --git a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/XmlParserTests.java b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/XmlParserTests.java
index 1fa19aa7f..8a64ae5f9 100644
--- a/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/XmlParserTests.java
+++ b/org.hl7.fhir.r4b/src/test/java/org/hl7/fhir/r4b/test/XmlParserTests.java
@@ -24,7 +24,7 @@ public class XmlParserTests {
 
   @BeforeAll
   public static void setUp() throws Exception {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context = SimpleWorkerContext.fromPackage(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
     fp = new FHIRPathEngine(context);
 
diff --git a/org.hl7.fhir.r5/src/main/java/org/hl7/fhir/r5/test/utils/TestingUtilities.java b/org.hl7.fhir.r5/src/main/java/org/hl7/fhir/r5/test/utils/TestingUtilities.java
index 205e4548b..44d6dfe75 100644
--- a/org.hl7.fhir.r5/src/main/java/org/hl7/fhir/r5/test/utils/TestingUtilities.java
+++ b/org.hl7.fhir.r5/src/main/java/org/hl7/fhir/r5/test/utils/TestingUtilities.java
@@ -16,6 +16,7 @@ import org.hl7.fhir.utilities.Utilities;
 import org.hl7.fhir.utilities.VersionUtilities;
 import org.hl7.fhir.utilities.npm.BasePackageCacheManager.InputStreamWithSrc;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.IPackageProvider;
 import org.hl7.fhir.utilities.npm.NpmPackage;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
@@ -77,7 +78,7 @@ public class TestingUtilities extends BaseTestingUtilities {
 
     FilesystemPackageCacheManager pcm;
     try {
-      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
       IWorkerContext fcontext = null;
       if (VersionUtilities.isR5Ver(version)) {
         // for purposes of stability, the R5 core package comes from the test case repository
diff --git a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/CDARoundTripTests.java b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/CDARoundTripTests.java
index 77c13ad19..c365eb80f 100644
--- a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/CDARoundTripTests.java
+++ b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/CDARoundTripTests.java
@@ -16,6 +16,7 @@ import org.hl7.fhir.r5.test.utils.TestingUtilities;
 import org.hl7.fhir.r5.utils.FHIRPathEngine;
 import org.hl7.fhir.utilities.Utilities;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
 import org.junit.jupiter.api.Assertions;
 import org.junit.jupiter.api.BeforeAll;
@@ -28,7 +29,7 @@ public class CDARoundTripTests {
 
 	@BeforeAll
 	public static void setUp() throws Exception {
-	    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+	    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
 		context = TestingUtilities.getWorkerContext(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
 		fp = new FHIRPathEngine(context);
 
diff --git a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/ParsingTests.java b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/ParsingTests.java
index fdfc9803a..430754c14 100644
--- a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/ParsingTests.java
+++ b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/ParsingTests.java
@@ -18,6 +18,7 @@ import org.hl7.fhir.utilities.TextFile;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
 import org.hl7.fhir.utilities.npm.NpmPackage;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.junit.jupiter.api.Assertions;
 import org.junit.jupiter.api.BeforeAll;
 import org.junit.jupiter.params.ParameterizedTest;
@@ -34,7 +35,7 @@ public class ParsingTests {
   }
 
   public static Stream<Arguments> data() throws ParserConfigurationException, IOException, FHIRFormatError, SAXException {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
 //    npm = pcm.loadPackage("hl7.fhir.r5.examples", "5.0.0");
     npm = NpmPackage.fromPackage(TestingUtilities.loadTestResourceStream("r5", "packages", "hl7.fhir.r5.examples.tgz"));
     List<Arguments> objects = new ArrayList<>();
diff --git a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/SnapShotGenerationTests.java b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/SnapShotGenerationTests.java
index 78d21d28f..4b551d4c5 100644
--- a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/SnapShotGenerationTests.java
+++ b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/SnapShotGenerationTests.java
@@ -48,6 +48,7 @@ import org.hl7.fhir.utilities.npm.CommonPackages;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
 import org.hl7.fhir.utilities.npm.NpmPackage;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.validation.ValidationMessage;
 import org.hl7.fhir.utilities.validation.ValidationMessage.IssueSeverity;
 import org.hl7.fhir.utilities.xml.XMLUtil;
@@ -535,7 +536,7 @@ public class SnapShotGenerationTests {
     pu.setIds(test.getSource(), false);
     pu.setAllowUnknownProfile(test.allow);
     if (!TestingUtilities.getSharedWorkerContext().hasPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER)) {
-      NpmPackage npm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION).loadPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER);
+      NpmPackage npm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER).loadPackage(CommonPackages.ID_XVER, CommonPackages.VER_XVER);
       TestingUtilities.getSharedWorkerContext().loadFromPackage(npm, new TestPackageLoader(Utilities.strings("StructureDefinition")), Utilities.strings("StructureDefinition"));
     }
     pu.setXver(new XVerExtensionManager(TestingUtilities.getSharedWorkerContext()));
diff --git a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/StructureMapUtilitiesTest.java b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/StructureMapUtilitiesTest.java
index de1506f40..146589681 100644
--- a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/StructureMapUtilitiesTest.java
+++ b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/StructureMapUtilitiesTest.java
@@ -18,6 +18,7 @@ import org.hl7.fhir.r5.utils.structuremap.ITransformerServices;
 import org.hl7.fhir.r5.utils.structuremap.StructureMapUtilities;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.junit.jupiter.api.Assertions;
 import org.junit.jupiter.api.BeforeAll;
 import org.junit.jupiter.api.Test;
@@ -28,7 +29,7 @@ public class StructureMapUtilitiesTest implements ITransformerServices {
 
   @BeforeAll
   static public void setUp() throws Exception {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context = TestingUtilities.getWorkerContext(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
   }
 
diff --git a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/XmlParserTests.java b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/XmlParserTests.java
index a1415e9da..19d1e4653 100644
--- a/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/XmlParserTests.java
+++ b/org.hl7.fhir.r5/src/test/java/org/hl7/fhir/r5/test/XmlParserTests.java
@@ -14,6 +14,7 @@ import org.hl7.fhir.r5.test.utils.TestingUtilities;
 import org.hl7.fhir.r5.utils.FHIRPathEngine;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.junit.jupiter.api.Assertions;
 import org.junit.jupiter.api.BeforeAll;
 import org.junit.jupiter.api.Test;
@@ -25,7 +26,7 @@ public class XmlParserTests {
 
   @BeforeAll
   public static void setUp() throws Exception {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     context = TestingUtilities.getWorkerContext(pcm.loadPackage("hl7.fhir.r4.core", "4.0.1"));
 
     fp = new FHIRPathEngine(context);
diff --git a/org.hl7.fhir.utilities/src/main/java/org/hl7/fhir/utilities/npm/FilesystemPackageCacheManager.java b/org.hl7.fhir.utilities/src/main/java/org/hl7/fhir/utilities/npm/FilesystemPackageCacheManager.java
index 5eb5fd2bb..a246562e0 100644
--- a/org.hl7.fhir.utilities/src/main/java/org/hl7/fhir/utilities/npm/FilesystemPackageCacheManager.java
+++ b/org.hl7.fhir.utilities/src/main/java/org/hl7/fhir/utilities/npm/FilesystemPackageCacheManager.java
@@ -36,6 +36,7 @@ import org.hl7.fhir.utilities.json.model.JsonArray;
 import org.hl7.fhir.utilities.json.model.JsonElement;
 import org.hl7.fhir.utilities.json.model.JsonObject;
 import org.hl7.fhir.utilities.json.parser.JsonParser;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.IPackageProvider;
 import org.hl7.fhir.utilities.npm.NpmPackage.NpmPackageFolder;
 import org.hl7.fhir.utilities.npm.PackageList.PackageListEntry;
@@ -88,6 +89,11 @@ import org.slf4j.LoggerFactory;
 public class FilesystemPackageCacheManager extends BasePackageCacheManager implements IPackageCacheManager {
 
 
+  public enum FilesystemPackageCacheMode {
+    USER, SYSTEM, TESTING
+
+  }
+
   // When running in testing mode, some packages are provided from the test case repository rather than by the normal means
   // the PackageProvider is responsible for this. if no package provider is defined, or it declines to handle the package, 
   // then the normal means will be used
@@ -111,31 +117,32 @@ public class FilesystemPackageCacheManager extends BasePackageCacheManager imple
   private JsonArray buildInfo;
   private boolean suppressErrors;
  
-  /**
-   * Constructor
-   */
-  @Deprecated
-  public FilesystemPackageCacheManager(boolean userMode, int toolsVersion) throws IOException {
-    myPackageServers.addAll(PackageServer.publicServers());
-
-    if (userMode)
-      cacheFolder = Utilities.path(System.getProperty("user.home"), ".fhir", "packages");
-    else
-      cacheFolder = Utilities.path("var", "lib", ".fhir", "packages");
-    if (!(new File(cacheFolder).exists()))
-      Utilities.createDirectory(cacheFolder);
-    if (!(new File(Utilities.path(cacheFolder, "packages.ini")).exists()))
-      TextFile.stringToFile("[cache]\r\nversion=" + CACHE_VERSION + "\r\n\r\n[urls]\r\n\r\n[local]\r\n\r\n", Utilities.path(cacheFolder, "packages.ini"), false);
-    createIniFile();
-  }
-
+  
   public FilesystemPackageCacheManager(boolean userMode) throws IOException {
+    init(userMode ? FilesystemPackageCacheMode.USER : FilesystemPackageCacheMode.SYSTEM);  
+  }
+  
+  public FilesystemPackageCacheManager(FilesystemPackageCacheMode mode) throws IOException {
+    init(mode);
+  }
+  
+  public void init(FilesystemPackageCacheMode mode) throws IOException {
     myPackageServers.addAll(PackageServer.publicServers());
 
-    if (userMode)
-      cacheFolder = Utilities.path(System.getProperty("user.home"), ".fhir", "packages");
-    else
+    switch (mode) {
+    case SYSTEM:
       cacheFolder = Utilities.path("var", "lib", ".fhir", "packages");
+      break;
+    case USER:
+      cacheFolder = Utilities.path(System.getProperty("user.home"), ".fhir", "packages");
+      break;
+    case TESTING:
+      cacheFolder = Utilities.path("[tmp]", ".fhir", "packages");
+      break;
+    default:
+      break;    
+    }
+
     if (!(new File(cacheFolder).exists()))
       Utilities.createDirectory(cacheFolder);
     if (!(new File(Utilities.path(cacheFolder, "packages.ini")).exists()))
diff --git a/org.hl7.fhir.utilities/src/test/java/org/hl7/fhir/utilities/tests/PackageCacheTests.java b/org.hl7.fhir.utilities/src/test/java/org/hl7/fhir/utilities/tests/PackageCacheTests.java
index 541d536dd..15fb78980 100644
--- a/org.hl7.fhir.utilities/src/test/java/org/hl7/fhir/utilities/tests/PackageCacheTests.java
+++ b/org.hl7.fhir.utilities/src/test/java/org/hl7/fhir/utilities/tests/PackageCacheTests.java
@@ -7,6 +7,7 @@ import java.util.List;
 import org.hl7.fhir.utilities.Utilities;
 import org.hl7.fhir.utilities.npm.CommonPackages;
 import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager;
+import org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode;
 import org.hl7.fhir.utilities.npm.NpmPackage;
 import org.hl7.fhir.utilities.npm.ToolsVersion;
 import org.junit.jupiter.api.Assertions;
@@ -16,14 +17,15 @@ public class PackageCacheTests {
 
   @Test
   public void testPath() throws IOException {
-    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(FilesystemPackageCacheMode.TESTING);
+    NpmPackage npm = cache.loadPackage(CommonPackages.ID_PUBPACK, CommonPackages.VER_PUBPACK);
     cache.clear();
     List<String> list = cache.listPackages();
     if (!list.isEmpty()) {
       System.out.println("remaining packages: "+list.toString());
     }
     Assertions.assertTrue(list.isEmpty(), "List should be true but is "+list.toString());
-    NpmPackage npm = cache.loadPackage(CommonPackages.ID_PUBPACK, CommonPackages.VER_PUBPACK);
+    npm = cache.loadPackage(CommonPackages.ID_PUBPACK, CommonPackages.VER_PUBPACK);
     npm.loadAllFiles();
     Assertions.assertNotNull(npm);
     File dir = new File(Utilities.path("[tmp]", "cache"));
@@ -41,7 +43,7 @@ public class PackageCacheTests {
   
   @Test
   public void testPatchWildCard() throws IOException {
-    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(FilesystemPackageCacheMode.TESTING);
     cache.clear();    
     Assertions.assertEquals(cache.loadPackage("hl7.fhir.us.core", "3.1.0").version(), "3.1.0");
     Assertions.assertEquals(cache.loadPackage("hl7.fhir.us.core", "3.1.1").version(), "3.1.1");
@@ -51,7 +53,7 @@ public class PackageCacheTests {
 
   @Test
   public void testNotCaseSensitive() throws IOException {
-    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(FilesystemPackageCacheMode.TESTING);
     cache.clear();    
     Assertions.assertEquals(cache.loadPackage("KBV.Basis", "1.1.3").version(), "1.1.3");
     Assertions.assertEquals(cache.loadPackage("kbv.basis", "1.1.3").version(), "1.1.3");    
@@ -59,7 +61,7 @@ public class PackageCacheTests {
   
   @Test
   public void testLastReleasedVersion() throws IOException {
-    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager cache = new FilesystemPackageCacheManager(FilesystemPackageCacheMode.TESTING);
     cache.clear();
     Assertions.assertEquals("0.0.8", cache.loadPackage(CommonPackages.ID_PUBPACK, "0.0.8").version());
     Assertions.assertEquals(CommonPackages.VER_PUBPACK, cache.loadPackage(CommonPackages.ID_PUBPACK).version());    
diff --git a/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/ValidationEngine.java b/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/ValidationEngine.java
index 29b664e21..de492ecf4 100644
--- a/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/ValidationEngine.java
+++ b/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/ValidationEngine.java
@@ -973,7 +973,7 @@ public class ValidationEngine implements IValidatorResourceFetcher, IValidationP
   public FilesystemPackageCacheManager getPcm() throws IOException {
     if (pcm == null) {
       //System.out.println("Creating Package manager?");
-      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     }
     return pcm;
   }
diff --git a/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/packages/PackageValidator.java b/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/packages/PackageValidator.java
index a7cb01f3b..e5130659c 100644
--- a/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/packages/PackageValidator.java
+++ b/org.hl7.fhir.validation/src/main/java/org/hl7/fhir/validation/packages/PackageValidator.java
@@ -21,7 +21,7 @@ public class PackageValidator {
   }
 
   private void execute() throws IOException {
-    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     
     PackageClient pc = new PackageClient(PackageServer.primaryServer());
     for (PackageInfo t : pc.search(null, null, null, false)) {
diff --git a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/comparison/tests/ComparisonTests.java b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/comparison/tests/ComparisonTests.java
index 542f90863..f0edc74be 100644
--- a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/comparison/tests/ComparisonTests.java
+++ b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/comparison/tests/ComparisonTests.java
@@ -110,7 +110,7 @@ public class ComparisonTests {
     if (context == null) {
       System.out.println("---- Load R5 ----------------------------------------------------------------");
       context = TestingUtilities.getSharedWorkerContext();
-      FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
       NpmPackage npm = pcm.loadPackage("hl7.fhir.us.core#3.1.0");
       BaseWorkerContext bc = (BaseWorkerContext) context;
       boolean dupl = bc.isAllowLoadingDuplicates();
@@ -123,7 +123,7 @@ public class ComparisonTests {
     if (!new File(Utilities.path("[tmp]", "comparison")).exists()) {
       System.out.println("---- Set up Output ----------------------------------------------------------");
       Utilities.createDirectory(Utilities.path("[tmp]", "comparison"));
-      FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+      FilesystemPackageCacheManager pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
       NpmPackage npm = pcm.loadPackage(CommonPackages.ID_PUBPACK, CommonPackages.VER_PUBPACK);
       for (String f : npm.list("other")) {
         TextFile.streamToFile(npm.load("other", f), Utilities.path("[tmp]", "comparison", f));
diff --git a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/R3R4ConversionTests.java b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/R3R4ConversionTests.java
index f0a78967b..d441519e0 100644
--- a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/R3R4ConversionTests.java
+++ b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/R3R4ConversionTests.java
@@ -309,7 +309,7 @@ public class R3R4ConversionTests implements ITransformerServices, IValidatorReso
     if (contextR3 != null)
       return;
 
-    pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+    pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
     R3ToR4Loader ldr = (R3ToR4Loader) new R3ToR4Loader().setPatchUrls(true).setKillPrimitives(true);
 
     System.out.println("loading R3");
diff --git a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/UtilitiesXTests.java b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/UtilitiesXTests.java
index befe16d8a..302ac9814 100644
--- a/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/UtilitiesXTests.java
+++ b/org.hl7.fhir.validation/src/test/java/org/hl7/fhir/conversion/tests/UtilitiesXTests.java
@@ -89,7 +89,7 @@ public class UtilitiesXTests {
 	  if (!fcontexts.containsKey(version)) {
 	    FilesystemPackageCacheManager pcm;
 	    try {
-	      pcm = new FilesystemPackageCacheManager(true, ToolsVersion.TOOLS_VERSION);
+	      pcm = new FilesystemPackageCacheManager(org.hl7.fhir.utilities.npm.FilesystemPackageCacheManager.FilesystemPackageCacheMode.USER);
 	      IWorkerContext fcontext = TestingUtilities.getWorkerContext(pcm.loadPackage(VersionUtilities.packageForVersion(version), version), loaderForVersion(version));
 	      fcontext.setUcumService(new UcumEssenceService(UtilitiesXTests.loadTestResourceStream("ucum", "ucum-essence.xml")));
 	      fcontext.setExpansionProfile(new Parameters());