According to my fed boss, nobody will ever see your resume if you don't rate yourself as an expert on everything
I agree with the sentiment, but in practice, they will never see YOU if there's no support for expert ratings on your resume. Rate yourself as highly as you feel comfortable (and a little guilding of the lilly is OK, don't overdo it) and definitely give yourself credit for non-federal experience.
Questions about experience developing program guidelines can mean the person who wrote the listing is an imbecile, or, the listing is designed for specific person.
"Applicant must possess an Olympic
Bronze medal" is a good indicator of the latter.