United States Department of Agriculture (USDA) eGovernment Program

#########  {#section .unnumbered}

#########  Overview -- Executive Summary {#overview-executive-summary .unnumbered}

######### eLearning Business Case {#elearning-business-case .unnumbered}

######### Final {#final .unnumbered}

February 2003

![](media/image1.jpeg){width="1.75in" height="1.2666666666666666in"}

**Table of Contents**

[Revision History iii](#revision-history)

[Previous Change History iii](#previous-change-history)

[Document Sign-off iii](#document-sign-off)

[1 Introduction 1](#introduction)

[1.1 Project Description and Status 1](#project-description-and-status)

[2 Current Capability 4](#current-capability)

[2.1 Business Architecture 4](#business-architecture)

[2.1.1 Internet Combined Administrative Management System (I-CAMS)
5](#internet-combined-administrative-management-system-i-cams)

[2.1.2 mGen 5](#mgen)

[2.1.3 Training Integrated Personnel System and Virtual Training
Assistant (TIPS/VTA)
5](#training-integrated-personnel-system-and-virtual-training-assistant-tipsvta)

[2.2 Goals and Objectives 6](#goals-and-objectives)

[2.3 Customers and Stakeholders 6](#customers-and-stakeholders)

[3 Desired Capability 7](#desired-capability)

[3.1 Business Architecture 7](#business-architecture-1)

[3.2 Goals and Objectives 8](#goals-and-objectives-1)

[3.2.1 President's Management Agenda 9](#presidents-management-agenda)

[3.2.2 USDA Secretarial Priority 9](#usda-secretarial-priority)

[3.2.3 USDA eGovernment Strategic Plan
10](#usda-egovernment-strategic-plan)

[3.2.4 Executive Order 12866 10](#executive-order-12866)

[3.2.5 Office of Management and Budget Circular A-123
11](#office-of-management-and-budget-circular-a-123)

[3.2.6 Office of Management and Budget Circular A-130
11](#office-of-management-and-budget-circular-a-130)

[3.2.7 Regulatory Flexibility Act of 1980
11](#regulatory-flexibility-act-of-1980)

[3.2.8 Quality of Information Guidelines
11](#quality-of-information-guidelines)

[3.2.9 Government Paperwork Elimination Act (GPEA)
12](#government-paperwork-elimination-act-gpea)

[3.2.10 Section 508 12](#section-508)

[3.3 Customers and Stakeholders 12](#customers-and-stakeholders-1)

[4 Value Proposition 14](#value-proposition)

[4.1 Benefits 15](#benefits)

[4.1.1 Citizens 15](#citizens)

[4.1.2 Business Partners 15](#business-partners)

[4.1.3 Employees 15](#employees)

[5 Impacts 17](#impacts)

[5.1 Enterprise Architecture 17](#enterprise-architecture)

[5.2 eGovernment Planning 18](#egovernment-planning)

[5.3 Risk Management 19](#risk-management)

[5.4 Telecommunications Plan 20](#telecommunications-plan)

[5.5 Security Plan 20](#security-plan)

[6 Alternatives Analysis 21](#alternatives-analysis)

[6.1 Build Individual Solutions 21](#build-individual-solutions)

[6.2 Leverage an Existing USDA System
22](#leverage-an-existing-usda-system)

[6.3 Contract the eLearning Solution to an Application Service Provider
23](#contract-the-elearning-solution-to-an-application-service-provider)

[7 Implementation Approach 24](#implementation-approach)

[7.1 Staffing Plan 24](#staffing-plan)

[7.1.1 Advisory Team 24](#advisory-team)

[7.1.2 eGovernment Program Management Office
24](#egovernment-program-management-office)

[7.1.3 eLearning Project Team 25](#elearning-project-team)

[7.2 Project Plan 25](#project-plan)

# Revision History {#revision-history .unnumbered}

## Previous Change History {#previous-change-history .unnumbered}

Table a -- Previous Change History

  --------------------------- ------------------------ -------------------------- ---------------------------
  **[Version]{.smallcaps}**   **[Date]{.smallcaps}**   **[Author]{.smallcaps}**   **[Comment]{.smallcaps}**

  1.0                         11/19/2002               Amanda R. Plummer          Initial Draft

  1.1                         11/21/2002               Amanda R. Plummer          Updated with team comments

  1.2                         11/22/2002               Amanda R. Plummer          Updated with team comments

  1.3                         11/22/2002               Amanda R. Plummer          Updated with team comments

  1.4                         11/22/2002               Amanda R. Plummer          Updated formatting

  1.5                         11/23/2002               Amanda R. Plummer          Updated with team comments

  1.6                         11/24/2002               Elaine K. Turville         Updated formatting

  1.7                         12/03/2002               Sara Q. Tyndall            Updated formatting

  1.8                         12/03/2002               Amanda R. Plummer          Updated with team comments

  1.9                         12/09/2002               Elaine K. Turville         Updated naming

  2.0                         12/11/2002               Elaine K. Turville         Updated with team comments

  2.1                         12/13/2002               Elaine K. Turville         Updated with team comments

  2.2                         12/17/2002               Elaine K. Turville         Updated with team comments

  2.3                         01/13/2003               Elaine K. Turville         Updated with team comments

  2.4                         01/28/2003               Elaine K. Turville         Updated with team comments

  2.5                         02/03/2003               Liesl M. Awalt             Updated with team comments

  2.6                         02/05/2003               Liesl M. Awalt             Added reference to early
                                                                                  adopters

  2.7                         02/06/2003               Liesl M. Awalt             Updated with Sandy Facinoli
                                                                                  comments

  2.8                         02/19/2003               Liesl M. Awalt             Updated with Sandy Facinoli
                                                                                  comments

  2.9                         02/20/2003               Liesl M. Awalt             Updated with Sandy Facinoli
                                                                                  comments

  3.0                         02/26/2003               Liesl M. Awalt             Updated with Cyber Security
                                                                                  comments

  3.1                         02/27/2003               Elaine K. Turville         Updated with comments

  3.2                         07/25/2003               Gregory A. Zanowski        Updated to read "Final"
  --------------------------- ------------------------ -------------------------- ---------------------------

## Document Sign-off {#document-sign-off .unnumbered}

Table b -- Document Sign-off

  ------------------------ ------------------------ -----------------------------------
  **[Date]{.smallcaps}**   **[Name]{.smallcaps}**   **[Title]{.smallcaps}**

                                                    
  ------------------------ ------------------------ -----------------------------------

# Introduction

This document serves as a high level overview of the eLearning Select
Phase business case and includes the following sections:

-   **Current Capability:** Outlines the services or processes that
    currently exist.

-   **Desired Capability:** Describes the vision for the initiative.

-   **Value Proposition:** Addresses the business need and justification
    for implementation.

-   **Impacts:** Identifies the effects on existing technological
    infrastructure and business initiatives.

-   **Alternatives Analysis:** Delineates the three alternatives for the
    solution.

-   **Implementation:** Documents the steps necessary to implement the
    program.

## Project Description and Status

eLearning is one of the twelve eGovernment Smart Choices that were
delineated in USDA\'s eGovernment Strategic Plan FY 2002-2006. The
twelve Smart Choices are all cross-mission area, enterprise-wide or
inter-departmental in nature. They are the prioritized results of a
process that originally identified hundreds of prospective eGovernment
opportunities. For each of the initiatives including eLearning, an
interagency team of USDA\'s best business and technical leads are
driving the efforts to complete all necessary analysis to secure the
funding and move towards implementation.

USDA's eLearning initiative will be closely integrated with
government-wide efforts to improve education and training services
through the Presidential Initiative for eTraining. USDA intends to
leverage GoLearn.gov for much of its learning content and the Learning
Management System (LMS). The GoLearn.gov solution will be evaluated
based on its ability to meet USDA's requirements for the LMS.

Additionally, USDA's eLearning initiative plays a role in the
Department's Human Capital Management Plan. The Plan supports the Human
Capital Management component of the President's Management Agenda.
Throughout the document, the interconnectivity of the Plan with the
eGovernment initiatives and specifically eLearning are described in
detail. Team members from the eGovernment Program are involved in
assisting the Department's Human Resources Staff on a successful course
for ensuring that eLearning activities support the learning needs
outlined in the Plan.

The eLearning initiative will also support the requirements of the CIO
Council's government-wide *IT Roadmap* program. *IT Roadmap,* led by the
Information Technology (IT) Workforce Council, is intended to identify
competencies and strategic needs for careers in IT.

An integrated eLearning environment in USDA that supports and enhances
government-wide initiatives will provide USDA with a more effective
learning experience at significant cost reductions. The integrated
environment spans the underlying LMS that manages all training (formal,
classroom, CD ROM, online, etc.) and also the learning content that is
provided online via the LMS. Courses provided through the LMS will be
available to USDA employees and potentially to the Department's state
and local partners.

A Learning Management System is a software application that enables the
delivery and management of all facets of training methodologies,
including the ability to manage classrooms, learning assets,
instructors, schedules, learning paths and all of the necessary
components to deliver training in an effective manner. An LMS provides
instructors with the ability to create and deliver content and monitor
student participation and assess student performance. Also, an LMS
allows individuals and groups of users to:

-   View complete course listings and course information;

-   Register, schedule and track training sessions;

-   Track competency and certification progress;

-   Personalize training and development plans; and

-   Manage payments.

With an enterprise-wide Learning Management System, trainers will be
able to create, manage, and deliver a combination of self-paced and live
learning experiences over the Web or other electronic media, traditional
instructor-led training, blended-learning, and various other forms of
instruction.

The following capabilities will be delivered:

-   **Administration of curriculum**: Adjustable curriculums for the
    entire Agency, group of individuals, or single employees;

-   **Individualized training**: Specialized training to enable
    employees to gain skills;

-   **Registration for training**: Registration for training, both
    online and offline, within the USDA or externally;

-   **Financial Support**: Integration of a learning management system
    with Department financial systems to centralize the procurement of
    training;

-   **Training delivery platforms**: Online delivery platforms supported
    by the training management system;

-   **Content Publishing for Online Courses**: Creation and maintenance
    of content in a solution that uses a common content management
    capability;

-   **Standardized Skills Assessment**: Common skills assessment
    capability across the enterprise;

-   **Human Resources System Integration**: Tracking of training on an
    individual\'s personnel record; and

-   **Collaboration with other learners**: Tools that enable users to
    collaborate with each other during the learning process.

# Current Capability

The current capability section evaluates the business architecture,
goals and objectives, customers and stakeholders that exist for a
learning management system in the current environment.

## Business Architecture

The following section gives a brief overview of the USDA systems used to
manage and administer training within USDA. A number of Agencies
currently use one of several online systems for learning management. The
following is a list of systems being used and the Agencies that support
these systems:

-   Internet Combined Administrative Management System (I-CAMS)

    -   Natural Resources Conservation Service;

    -   Farm Service Agency;

    -   Rural Development; and

    -   Agricultural Marketing Service.

-   mGen

    -   Risk Management Agency;

    -   Rural Development; and

    -   APHIS[^1].

-   Training Integrated Personnel System (TIPS) and Virtual Training
    Assistant (VTA)

    -   Forest Service; and

    -   Food Safety and Inspection Service.

Overall, existing learning management systems used by Agencies in USDA
have the following limitations:

-   No system addresses all of the LMS capabilities listed above;

-   LMS capabilities, if available, only exist on an Agency-specific
    basis without enterprise-wide cooperation; and

-   Processes addressing LMS capabilities are often handled manually
    using paper.

### Internet Combined Administrative Management System (I-CAMS)

While Internet Combined Administrative Management System (I-CAMS) is not
a learning management system, it does provide some capabilities for
training management. I-CAMS is a web-based integrated human resources
information system that allows employees to access employment
information from a centralized database maintained by the Human
Resources Department. The system allows employees to view their
performance reviews, supervisors to initiate and store performance plans
and reviews, and all users to request, process and review training.

### mGen

Two years ago, the Office of Communications purchased an "off the shelf"
third-party learning management system called mGen.[^2] RMA and RD are
currently using the mGen solution. APHIS, on the other hand, purchased
the software licenses but has not yet implemented mGen. The mGen
solution comprises capabilities of both a learning management system and
learning content management system. Course content available from
Learn2, SmartForce, NETg, and ElementK can be quickly integrated into
mGen. The mGen solution provides a built-in content management system,
content authoring tools, assessment tools for quizzes and exams, and
skills gap analysis.

### Training Integrated Personnel System and Virtual Training Assistant (TIPS/VTA)

The Training Integrated Personnel System (TIPS) system allows students
to evaluate themselves against competencies required for their present
position and future positions while completing their Individual
Development Plan. Included in the Forest Service's system is an
off-the-shelf learning management system called Virtual Training
Assistant (VTA) that has administration, training delivery, and
evaluation tools. The Food Safety and Inspection Service has an
implementation of the VTA system without TIPS, but they are only using
it for tracking purposes, not its full learning management capabilities.

## Goals and Objectives

Currently, learning-related technologies within USDA inconsistently
support the goals and objectives of the President's Management Agenda,
USDA Strategic Plan, eGovernment Strategic Plan, GPEA, and Section 508.
Without consistent enterprise-wide standards and solutions, USDA
struggles to meet many of these goals and objectives.

Across the Department there are duplicative activities related to the
delivery of training services, software licenses purchased, and work
related to the procurement, design, implementation and management of
training activities performed. Some organizations within USDA use online
tools to provide training to its employees. However, USDA does not
currently employ a universal system to provide cost savings and prevent
wasteful duplication of course offerings. Until an enterprise-wide
solution is in place, the goals and objectives of the President's
Management Agenda, USDA Strategic Plan, and the eGovernment Strategic
Plan cannot be met.

## Customers and Stakeholders

The eLearning initiative includes both internal and external key
customers and stakeholders who are either directly served or affected by
the implementation of the eLearning program. It is important to consider
the impact of the initiative on these groups within a discussion of the
current situation at USDA. The following are the primary customer groups
addressed by the eLearning initiative outlined in this business case:

-   **Citizens:** Service to citizens will improve dramatically as USDA
    employees receive the right training to increase their productivity
    on the job;

-   **Business Partners:** Access to training will increase USDA's
    business partners' ability to effectively conduct business. Service
    to business partners will improve through better training for the
    USDA employees with whom they interact; and

-   **Employees:** Continuous training of employees is one of the most
    important activities performed at USDA and is a key component of the
    Department's Human Capital Management Plan in support of the
    President's Management Agenda. This importance is evidenced by the
    fact that most Agencies in the Department have a formal training
    program and dedicated training staff. Any USDA employee who
    receives, administers, or manages training will benefit from the
    enterprise-wide eLearning initiative as they have the opportunity
    for appropriate learning experiences delivered in an effective and
    efficient manner.

# Desired Capability

The desired capability section evaluates the business architecture,
goals and objectives, and customers and stakeholders that will exist for
eLearning in the future environment.

## Business Architecture

eLearning encompasses several overarching objectives that reflect an
effort to satisfy the current business needs of USDA with regards to
eLearning. These goals are the means by which we define what the
investment should accomplish during its lifecycle.

A successful, enterprise-wide eLearning environment implemented by each
Agency in USDA and administered through a central learning management
platform will allow Agencies to combine existing methodologies and
emerging technologies. The eLearning initiative consists of the learning
content and also the Learning Management System that hosts and displays
the training to the users. These LMS tools will provide a more effective
learning experience at significant cost reduction.

Increasingly, trainers will be able to effectively design a training
program using a combination of self-paced and live learning experiences
over the Web or other electronic media, traditional instructor-led
training, and various other forms of instruction. By sharing training
experiences, successes and common platforms, Agencies will increase
their ability to utilize new training methodologies without duplicating
efforts or shouldering the burden of technology implementation alone.

The eLearning initiative will leverage government-wide training content
that is available through GoLearn.gov, a learning management system
supporting the Presidential Initiative for eTraining. Using the
interagency contract that is being created currently, Agencies will be
able to take part in the purchasing of content from GoLearn.gov at deep
discounts. In addition, the site offers free courses, the opportunity
for collaborative learning, and other constantly increasing features for
learners visiting the site.

As seen in the analysis of USDA's current learning management
capabilities, there are a host of actual and prospective duplications in
services rendered, software licenses purchased, and the preparation of
training within USDA.

An enterprise-wide learning management solution will provide the
following tangible benefits:

-   Allow for economies of scale in the enterprise-wide purchase of
    eLearning products and services;

-   Eliminate redundancies among training offered within the Department;

-   Coordinate management, and promote interagency collaboration, of
    Federal eLearning services by USDA, although resources would be
    retained by the Agencies to which those resources were appropriated;

-   Encourage Agencies without eLearning strategies to adopt this
    capability as the basis for their eLearning products and services;

-   Enhance the skill development of USDA employees by providing access
    to a wide array of training not previously available; and

-   Link the competencies to courseware and individual development plans
    to reach other government Agencies and tie them to their Agency
    strategic plans.

## Goals and Objectives

The eLearning initiative will support many USDA and government-wide
goals and objectives, including those detailed in the following
sections:

-   President's Management Agenda;

-   USDA Secretarial Priority;

-   USDA eGovernment Strategic Plan;

-   Executive Order 12866;

-   Office of Management and Budget Circular A-123;

-   Office of Management and Budget Circular A-130;

-   Regulatory Flexibility Act of 1980;

-   Quality of Information Guidelines;

-   Government Paperwork Elimination Act (GPEA); and

-   Section 508.

### President's Management Agenda

USDA eLearning supports the President's Management Agenda and the
Administration's emphasis on the overall improvement of education and
training services. Investment in the eLearning initiative will provide
USDA employees with better access to a wider array of training
opportunities. It will support training efforts, electronic and
traditional, that are now underway throughout USDA's Agencies.

eLearning serves to fulfill the eGovernment ideals as established by the
President's Management Agenda. eLearning specifically addresses the
President's Strategic Management of Human Capital Initiative to:
"...provide high interest and government-required training to government
employees at economies of scale pricing."

The eLearning initiative will integrate fully with the Presidential
Initiative eTraining. USDA will quickly move to leverage GoLearn.gov for
all government-wide training content. While USDA is performing vendor
analysis for the LMS, the content will be hosted on the GoLearn.gov
site.

During vendor analysis, USDA will review the LMS that GoLearn.gov is
implementing and evaluate it to determine if it fulfills all of the USDA
requirements for an LMS. The GoLearn.gov evaluation will occur in
parallel with the evaluation of the existing systems at USDA and other
vendors that offer complete learning management solutions.

### USDA Secretarial Priority

USDA Secretarial Priority refers to the consideration that is given to
projects, which directly support the priority initiatives of the
Secretary or the Administration. eLearning is one of those projects
supported by the Secretary of Agriculture. The Secretarial Priority
rating is awarded if the investment supports these priorities or is an
acknowledged budget priority. The components of Secretarial Priority
include the following:

-   Policy statements by the Secretary, Under Secretaries and Assistant
    Secretaries;

-   Department budget priorities; and

-   Administration budget priorities.

### USDA eGovernment Strategic Plan

The eLearning initiative is identified as a "Smart Choice" opportunity
for the USDA eGovernment strategic plan as well as multiple Agency
tactical plans. Implementing eLearning clearly supports the USDA
eGovernment Strategic Goal 3: "Improve internal efficiency by promoting
enterprise-wide solutions." Specifically, it meets the following
objectives:

-   Reduction in redundant applications, systems, and/or processes;

-   Increase in collaboration and information sharing among USDA
    employees;

-   Increase in the percentage of USDA employees using eLearning to
    complete eGovernment and other training needs;

-   Decrease in time spent on support functions and administrative
    tasks;

-   Increase in number of support and administrative functions deployed
    enterprise-wide;

-   Decrease in redundant support systems across Agencies and/or mission
    areas;

-   Increase in employee satisfaction with support and administrative
    functions;

-   Increase in the accuracy of management reporting and analysis; and

-   Increase in the number of management processes reviewed or
    redesigned for compatibility with eGovernment initiatives and
    services.

Implementing eLearning supports the USDA Government Strategic Goal 1:
"Improve citizens\' knowledge of and access to USDA in order to enhance
service delivery" by increase in the number of rural citizens receiving
USDA training or services via the Internet.

A successful eLearning implementation would improve the performance and
productivity of all employees through increased opportunities for and
better experiences with training.

### Executive Order 12866

The eLearning initiative supports the goals of Executive Order 12866,
which addresses the need to reform and make more efficient the
regulatory process within federal government. With increased
availability and sharing of information across the enterprise, USDA will
enhance planning and coordination with respect to new and existing
regulations.

### Office of Management and Budget Circular A-123

This Circular provides guidance to Federal managers on improving the
accountability and effectiveness of Federal programs and operations by
establishing, assessing, correcting, and reporting on management
controls. USDA employees will realize such improvements with the
implementation of the eLearning initiative. Through the use of the
documented business processes, management structures, and workflow
standards that are part of the eLearning initiative, employees will aid
in ensuring accountability for results through cost-effective and
enterprise-wide capabilities.

### Office of Management and Budget Circular A-130

The eLearning initiative directly supports the provisions of this
Circular on the management and security of federal information
resources. The enterprise will benefit from the implementation of
standardized business processes and workflows through the eLearning
initiative. Such improved organizational structures will increase the
ability of USDA management to maintain their training-related
information resources.

### Regulatory Flexibility Act of 1980

The eLearning initiative will support the goals of the Regulatory
Flexibility Act of 1980. This legislation requires various analyses,
including cost impacts and evaluation of alternatives, prior to any
federal agency regulation activity. This legislation requires Federal
Agencies to publish a semiannual regulatory flexibility agenda, publish
general notice of any proposed rulemaking, and prepare and make public
an initial regulatory flexibility analysis.

### Quality of Information Guidelines

The identification and proper handling of electronic information will
directly support the impending requirements from OMB for establishing
quality of information guidelines to ensure the quality, objectivity,
utility, and integrity of information disseminated by the Department of
Agriculture.

### Government Paperwork Elimination Act (GPEA)

The GPEA requires Federal agencies, by October 21, 2003, to provide
individuals or entities that deal with agencies the option to submit
information or transact with the agency electronically, and to maintain
records electronically, when practicable.[^3] USDA's eLearning
initiative supports the GPEA by enabling USDA employees to conduct
training-related transactions electronically. For example, users can
register for training online and trainers can administer curriculums
online. In addition, a learning management system can be integrated with
human resources systems to track and maintain employees' training
schedules electronically. All of these examples are in line with the
objectives outlined in the GPEA.

### Section 508 

USDA will ensure the eLearning initiative provides ready access to
information and services in accordance with Section 508. A reasonable
accommodation process will be created and adjusted to handle requests
and address complaints related to technology.

The eLearning initiative will also be an excellent way to ensure courses
offered online at USDA are Section 508 compliant. If they do not pass
the compliance guidelines, they will simply not be included in the
catalog of courses online.

## Customers and Stakeholders

The eLearning initiative involves both internal and external key
customers and stakeholders who are either directly served or affected by
the implementation of the eLearning program. The following are the
primary customer groups addressed by the eLearning initiative:

-   **Citizens:** Interactions with USDA will change as effective
    training of employees is implemented, resulting in a better-educated
    and more knowledgeable workforce.

-   **Business Partners:** USDA's business partners will be able to gain
    the appropriate level of access to training in a timely manner
    through a single, online solution. Additionally, interactions will
    improve as USDA employees are better trained to serve its business
    partners.

-   **Employees:** Via the enterprise-wide eLearning initiative,
    employees will have better access to training. This solution equates
    to greater access to training, a greater ability to share training
    content, and a more personalized learning experience, ultimately
    creating a more effective workforce.

# Value Proposition

Contracting to an application service provider is an important trend
within the Government and is described in the President's Management
Agenda. The contracting of eLearning services such as solution
development and maintenance to an applications service provider has been
a successful model for both private companies and Government Agencies.

Economy of scale benefits result from all USDA employees utilizing an
enterprise-wide learning management platform managed and administrated
by the vendor. A successful, enterprise-wide eLearning environment
implemented by each Agency in USDA and administered through a central
learning management platform will allow Agencies to combine existing
methodologies and emerging technologies. These tools will provide a more
effective learning experience at significant cost reduction.
Increasingly, trainers will be able to effectively design a training
program using a combination of self-paced and live learning experiences
over the Web or other electronic media, traditional instructor-led
training, and various other forms of instruction. By sharing training
experiences, successes and common platforms, Agencies will increase
their ability to utilize new training methodologies without duplicating
efforts or shouldering the burden of technology implementation alone.

In addition to the generic benefits realized through the implementation
of an enterprise-wide solution, contracting to an application service
provider offers the following additional benefits:

-   A consistent cost is incurred since no initial capital outlays are
    necessary, and services are paid for based on usage on a per person
    basis.

-   Agency resources are not required for the initial system
    implementation and, going forward, fewer Agency resources are
    required to maintain or administer the system.

-   Vendor agreements can be constructed to decrease implementation
    time, facilitating earlier Agency adoption of new solutions.

## Benefits

The eLearning initiative will provide benefits to all customers,
stakeholders, and users of the solution. Benefits can be further grouped
into four categories: increased productivity, cost savings, cost
avoidance, and quality gains.

These groups include:

-   Citizens;

-   Business Partners; and

-   Employees.

### Citizens

**Quality Gains:**

-   Improving training effectiveness, resulting in a better-educated and
    more knowledgeable workforce characterized by improved judgment and
    decision-making. This enables USDA to fulfill its mission and meet
    citizen needs.

### Business Partners

**Quality Gains:**

-   Supporting commercialized content and capability provides an
    expanded audience for eLearning, including suppliers, students, and
    other third parties; and

-   Enabling a single, web-based access point for class registration and
    the training catalog eases administration processes associated with
    training provided by partner institutions, business partners, or
    non-profits.

### Employees

**Productivity Gains:**

-   Allowing employees access to training content, class registration,
    and course catalogs from any location at any time using a web
    browser;

-   Enabling an automation of registration allows for faster updates and
    fewer data entry errors in registration than using a paper catalog
    and manual registration process; and

-   Automating administrative tasks, which allows administrators to
    focus on value added functions like course preparation, course
    review, and performance review.

**Cost Avoidance:**

-   Providing a web-enabled environment so administrators do not require
    specialized software to begin using the system; and

-   Transferring software and hardware upgrades and maintenance to the
    vendor.

**Cost Savings:**

-   Providing the most rapid implementation through a vendor, leading to
    the earliest realization of cost savings. Typically 80-90% of
    potential returns are realized in Year 1 and 100% of potential
    returns are realized in Year 2;

-   Leveraging the content available in GoLearn.gov decreases the costs
    for government-wide training content immediately;

-   Leveraging economies of scale vendor pricing through the vendor
    realizes the greatest discounts on course materials, maintenance
    costs, and updates;

-   Enabling on-line help and support menus result in fewer training
    related support inquiries and reduce the amount of time employees
    spend waiting for responses on common questions; and

-   Increasing availability of content through electronic distribution
    and reducing distribution, printing, materials, and postage costs of
    USDA developed courses.

**Quality Gains**

-   Allowing instantaneous, on-line student feedback for replacement of
    courses receiving low user effectiveness ratings enabling
    administrators to eliminate ineffective courses and replace them
    with higher quality ones;

-   Providing personalized content and the most relevant training
    information for each required skill sets thus easing identification
    of training needs based on job profiles and skills, and mapping
    knowledge and competencies to specific business objectives allowing
    training to be targeted by skill, Agency, and many other categories;
    and

-   Gathering aggregate, enterprise-wide training data to increase the
    ability of executives to track and report learning progress from a
    consolidated, enterprise-wide perspective.

# Impacts

Implementation of the eLearning initiative within USDA will have a
variety of impacts on both existing technological infrastructure and
business initiatives, including:

-   Enterprise Architecture;

-   eGovernment Planning;

-   Risk Management;

-   Telecommunications Plan; and

-   Enterprise Security Plan.

## Enterprise Architecture

USDA's eGovernment initiatives, including eLearning, do not exist in
isolation. These initiatives must work within the current IT
infrastructure and coexist with other planned IT initiatives.
eGovernment initiatives and eGovernment-related enhancements to existing
IT investments form the basis of much of USDA's future Enterprise
Architecture (EA). Changes to infrastructure components, like security
and telecommunications, will be based on eGovernment requirements. In
summary, the eGovernment initiatives are a piece of USDA's "to-be"
architecture.

eGovernment efforts and the Enterprise Architecture will continually
reinforce and refresh each other. As a key planning and risk management
tool, USDA's EA will be an essential mechanism for confirming that
USDA's eGovernment initiatives are coordinated with the Department's
current and future information and IT-related activities. This action
will ensure that Federal dollars are spent in a manner that maximizes
the value and usefulness of the Department's eGovernment efforts.

eLearning is one of the core initiatives of the eGovernment Program.
With this in consideration, the eLearning architecture has to cater to
the current and the future planned services of the eGovernment
initiative. The proposed architecture surrounding these initiatives
follows the overall concept of an eGovernment EA at both the Department
and Agency levels. The architecture is also designed to interface with
other eGovernment initiatives, including eAuthentication.

## eGovernment Planning

The primary objectives of the President\'s initiative for "Expanding
Electronic Government" include the following:

-   Improve citizens' ability to obtain service and interact with the
    Federal government;

-   Improve government efficiency and effectiveness; and

-   Improve the government\'s responsiveness to citizens.

The President\'s vision for reforming government emphasizes that
"government needs to reform its operations, how it goes about its
business and how it treats the people it serves." The vision is guided
by the three principles listed below:

-   Citizen-centered, not bureaucracy-centered;

-   Results-oriented; and

-   Market-based, actively promoting innovation.

Expanding Electronic Government is one of the five key elements in the
President\'s Management Agenda (PMA). In tandem with this effort, USDA
is working towards transforming and enhancing the delivery of
information, programs and services. USDA\'s various eGovernment
governance bodies have emphasized and communicated broadly the tenets of
the PMA:

-   Defining a strategy linked to a fundamentally reformed Capital
    Planning and Investment Control (CPIC) Process;

-   Leveraging investments;

-   Encouraging a citizen-centered approach; and

-   Seeking tangible, measurable results in eighteen to twenty-four
    months.

OMB has sponsored twenty-four specific eGovernment Presidential
Initiatives that will embody these tenets as they are implemented across
the Federal government, and USDA is contributing both directly and
indirectly to nineteen of these initiatives. Direct support involves
contributing human and financial resources to shape and implement the
initiatives. Additionally, some of the initiatives require work that is
indirectly related, as part of USDA\'s internal implementation of new
approaches to government-wide service delivery functions.

## Risk Management

Risk Management is the systematic approach for identifying, analyzing,
and mitigating risks that could be encountered by an initiative. Since
it is possible that some risks identified for the eLearning initiative
will eventually become realities, the eLearning Risk Management Plan
identifies a process to better prepare the project team to manage these
risks in a timely and effective manner. Following this plan will also
help to yield significant impact on the overall success of the
investment.

The process for addressing risks throughout the lifecycle of the project
includes the identification, analysis, mitigation, and tracking of
risks. eLearning risks have been identified and categorized into major
risk areas, such as financial, technical, operational, or security
risks. This process is described in greater detail in the Risk
Management Plan of the business case.

Some of the more crucial risks that have been identified for the
eLearning initiative include the following:

-   Proper funding may not be secured to continue moving forward with
    the initiative;

-   Complexity of interfaces with other systems is underestimated;

-   Users are not able to use the system proficiently;

-   Improper information may be published to the public;

-   Discussions with the Unions may lead to delays in the process or
    necessary changes;

-   Agencies or individual employees are resistant to adopt proposed
    solutions;

-   Unauthorized users gain access to data or content stored in the
    solution;

-   Unauthorized users gain access to sensitive content because they are
    not properly identified in the system;

-   Inability to transfer assets, such as equipment, facilities, and
    licenses, from USDA to the vendor; and

-   Inability to acquire the skills or resources necessary to manage the
    provisions of the vendor contract.

## Telecommunications Plan

The Telecommunications Plan for the eLearning initiative identifies the
current situation of telecommunications systems at USDA, as well as any
impacts the implementation of the eLearning initiative will have on its
structure or operational capability. Information on the current
telecommunications environment is limited. The eLearning initiative will
be implemented in a manner that leverages the existing network and
decreases the amount of new infrastructure that is needed.

In the future, USDA telecommunications technology experts such as
network design engineers, network operations technicians or network
transmission engineers will be able to review the eLearning architecture
and determine how it will integrate with the current USDA
telecommunications infrastructure.

## Security Plan

In today's enterprise environment, securing the enterprise consists of
securing both web-based and legacy applications. Organizations must
web-enable their applications and deploy these applications on a portal
platform to stay competitive and closer to their customers. There are
challenges for deploying the eLearning initiative and providing easy
access to training for employees, customers and partners, and open the
access to the enterprise applications.

The following are two major challenges to enterprise security:

-   Agencies utilize existing applications and databases to rapidly
    deploy the learning management system, and thereby open new means of
    access to their IT environment; and

-   eLearning provides access to core Agency legacy training and
    personnel data and therefore requires additional security.

With the implementation of the eLearning initiative, security will need
to exist at the following levels:

-   Secure authentication and authorization of customers including
    employees, business partners and citizens;

-   Ubiquitous access controls at the enterprise level applicable to all
    applications globally;

-   Data encryption for sensitive data exchanged over the internet; and

-   User tracking for protected features of the system.

# Alternatives Analysis

The implementation of enterprise-wide eLearning capabilities requires
careful planning and a combination of system development, change
management, marketing and communication efforts. Ultimately, Agencies
will be the main user groups of the technology, as they contribute to
and utilize the system. Both Agency leadership and users will be
involved in the necessary processes and procedural change to adopt and
implement the eLearning initiative. Marketing and communications efforts
will be imperative to help Agencies and users understand the
capabilities that will be offered to them upon completion of the
program.

In order to mitigate the impacts to USDA stakeholders, three technical
implementation alternatives were considered. Those three implementation
alternatives are as follows:

-   Continuing along the status quo, allowing each Agency to build its
    own eLearning initiative;

-   Leveraging an existing learning system within USDA to create an
    enterprise-wide eLearning initiative; and

-   Contracting the eLearning initiative to an application service
    provider and migrating existing USDA systems to the solution.

While the Cost Benefit Analysis indicated that contracting the eLearning
solution to an application service provider is the most appropriate
option, all three options were analyzed.

## Build Individual Solutions

USDA is on a path to allow each Agency to develop the learning
management solution of their choice. Several Agencies and Offices within
the Department have already begun building their own solutions. Prior to
the start of the eLearning initiative, each Agency and Staff Office had
the option to create its own solution that is autonomous from the
others. Each Agency would follow the same process of defining
requirements, conducting vendor analysis, procuring software and
hardware, and implementing the selected technologies. Each Agency would
be responsible for its own management of the solution, its own support
staff and its own developers and development contracts.

The independent Agency approach, while obviously granting the most
flexibility to Agencies and initiatives to select the technology of
their choice, would not receive the benefits gained from deploying an
enterprise-wide solution. Agencies would not be able to benefit from
economies of scale pricing, such as purchasing benefits for a large
deployment and premier support for a multi-billion dollar organization.

The quantitative benefits of developing an enterprise-wide solution
would be lost, and the Department would spend millions in additional
monies to work independently when many software requirements would
likely be very similar, yet disconnected. On the other hand, allowing
Agencies to build their own solutions would alleviate the need to work
through culture barriers to build an enterprise solution. Building their
unique systems would also give Agencies the flexibility to meet the
exact needs of their organization.

## Leverage an Existing USDA System

An enterprise-wide solution must meet the diverse programmatic needs of
USDA's Agencies, while at the same time, providing for economies of
scale where shared opportunities present themselves. A successful
eLearning environment implemented by every Agency in USDA and
administered by a central learning management platform will allow
trainers to combine existing training methodologies as well as new and
emerging technologies in order to provide a more effective learning
experience at significant cost reduction.

Leveraging an existing USDA learning management system would provide
significant benefits to USDA. The investments of time, money, and
resources that have already been made to the system would not be lost.
Instead, those investments would be utilized within the enterprise-wide
system. Some users and administrators are already trained to use the
products and thus fewer employees will need to receive training for the
new system. Once the system is in place, ongoing maintenance fees would
be relatively low.

However, leveraging a learning management system within USDA does have
potential drawbacks. Purchasing the additional hardware and software to
support new users will require a large capital outlay. If the system
selected does not meet 100% of the Agencies' requirements, additional,
and potentially costly additions will need to be made to the software.
Implementation time for the system to be available to the entire
Department might take twelve to eighteen months. Leveraging a system
within USDA requires the expense of Agency resources or contractors who
are trained to administer and support the system.

## Contract the eLearning Solution to an Application Service Provider

Many government and private options exist to contract out learning
management. Vendors of learning management systems often provide hosting
options, and business partners can also build and host a learning
management system for the Department. All users utilize an
enterprise-wide learning management platform. Agency trainers will be
able to share resources and courses. Employees will benefit from the
consolidation of courses and increased access to training.

In addition to the generic benefits of an enterprise-wide solution,
vendor management of a system provides additional benefits over
leveraging an existing system:

-   A consistent cost is incurred. No initial capital outlay for
    hardware and software is necessary, and services are paid for based
    on usage on a per person basis. Thus initial costs are much lower.

-   Agency resources are not required for system implementation and
    fewer Agency resources are required on an ongoing basis. System
    administration and support are the responsibility of the vendor.
    This alternative also provides benefits in terms of time. The
    eLearning solution could be ready in three to six months, depending
    on customizations necessary.

-   If the existing systems are capable of supporting the Department's
    learning management needs, an enterprise-wide option will be a
    mechanism for delivering the necessary services of the existing USDA
    system.

On the other hand, this decision does have some downsides. First of all,
Agencies who are currently using a system may need to move to the new
solution. The money and time that has been spent delivering those
systems will be lost. Next, the vendor must be held to their Service
Level Agreement (SLA), a document that details the products and services
promised. Careful management of the contract will ensure that the
Department receives the system it desires.

As with leveraging an existing system, the move to a contracted out
solution will require significant change management activities. Agency
leadership will need to champion the transition from in-house systems
and processes to a contracted out model. Marketing and communication
will need to educate users on the decision, and Agencies with existing
systems will need to transition to the new solution. A careful
coordination will ensure that the requirements of all Agencies are
successfully integrated into the solution.

# Implementation Approach

Since contracting the eLearning solution to an application service
provider is the desired technical approach to provide department wide,
learning management services, the implementation approach for the
eLearning project is a phased schedule. The phasing begins with a
handful of Agencies selected based on need and readiness to be "Early
Adopters" and gradually scales up to an enterprise-wide implementation
once other Agencies are ready to adopt the enabling technologies
included within the initiative.[^4]

This project's phased approach will begin in the first quarter of FY2003
and continue through FY2007. The enterprise-wide solution is designed to
fit the needs of all Agencies and integrate their technologies on an
enterprise-wide level whenever they are able to incorporate it into
their infrastructure.

The eLearning Project Plan outlines the major project tasks at a high
level throughout the lifecycle of the implementation schedule. The two
main components of the implementation approach are the Staffing Plan and
the Project Plan.

## Staffing Plan

The Staffing Plan will give an overview of the types of jobs and roles
required to run the eLearning initiative and will account for both USDA
and contracted resources.

### Advisory Team

An eGovernment Advisory Team, consisting of several advisory groups,
will guide the eLearning initiative. These groups include, but are not
limited to, the eGovernment Executive Council, the eGovernment Working
Group, and the eGovernment Steering Committee, and Agency eGovernment
Teams.

### eGovernment Program Management Office

An eGovernment Program Management Office (PMO) will provide overall
strategic planning, project management and financial management for
eGovernment enabling initiatives including eLearning, eAuthentication,
and eLearning. This will ensure that all eGovernment initiatives are
planned and implemented in a consistent manner under the auspices of the
eGovernment executive leadership and advisory team.

Within each Agency, there will be designated employees who will be
tasked with the daily operational activities for the solution. Within
Human Resources, the roles and responsibilities of existing employees
with will be modified and new roles may be created to adapt to the
administrative needs of the initiative. The management and oversight of
the system and initiative should include the following representatives:

-   Human Resources Management Personnel Officers; and

-   Agency Training Directors.

### eLearning Project Team

The eLearning Project Team will be an integrated team, consisting of
USDA employees and contractors representative of multiple organizations.
The primary objective of this team is to ensure that the eLearning
initiative will meet the needs of all of its users. The vendor will be
staffing many of the Project Team positions, but employees and
contractors with specific skill sets will fill technical, business, and
other roles.

## Project Plan

The Project Plan is the comprehensive plan for delivering the solutions
for the eLearning initiative. It delineates the varied aspects of the
project. It is the road map for achieving the program objectives and
realizing the project benefits. The Project Plan is a critical
communication tool and is at the heart of the planning and management
processes. It provides the starting position for project mobilization.
During the course of the project, it should be updated based on approved
change requests.

The Project Tasks for eLearning have been projected based on a release
schedule. Because of the aggressive time frame, complex requirements may
not be delivered during the first release; two additional releases will
be made which add new features to the system. The eLearning
implementation is broken into four phases:

-   **eLearning Pre-Implementation Tasks --** Pre-implementation tasks
    consists of the tasks that must be performed prior to
    implementation. These initial tasks include the vendor analysis and
    selection process as well as creating and configuring the technology
    infrastructure and the physical network required for implementation.
    These tasks begin and end in Q2 of FY03.

-   **eLearning Early Adopter Implementation --** The Early Adopter
    Implementation consists of a full implementation of eLearning
    services for early adopter Agencies. This implementation includes
    project planning, design, conversion, and workforce transition
    activities. Phase 2 begins in Q2 of FY03 and some tasks extend
    through Q1 of FY04. However, a fully functional implementation of
    Release 1 will be ready during Q4 of FY03.

-   **eLearning Enterprise-wide Implementation --** The Enterprise-wide
    Implementation consists of similar set of tasks as the Early Adopter
    Implementation and includes the requirements met by Release 1.
    During this time, remaining USDA Agencies will conduct full
    implementation of eLearning services. These tasks begin in Q1 of
    FY04 and some conversion tasks may extends through Q2 of FY05.

-   **Additional Functionality Releases --** The final task set consists
    of tasks required to bring additional requirements and/or
    enhancements to the eLearning initiative on a yearly basis. After
    refining application requirements during Q4 of the previous year,
    additional functionality will be added to the system. These
    additional releases are called Release 2 and Release 3 and will be
    implemented for Agency use during FY05 and FY06 respectively.

#  {#section-1 .unnumbered}

[^1]: APHIS intends to use mGen in the near future. Software licenses
    have been purchased; however, the system has not been deployed.

[^2]: The Office of Communications is not currently using the mGen
    system.

[^3]: Implementation of the Government Paperwork Elimination Act, Office
    of Management and Budget, http://www.whitehouse.gov/omb/

[^4]: Detailed information on the early adopter process and the specific
    approach for early adopter implementation, which includes a list of
    early adopter agencies, is available in the Risk Profile -- Early
    Adopter Plan business case document.