# Presentation: 002538

## Federal Enterprise Architecture Program Management Office 

*April 2003*

**Draft Performance Reference Model:****Overview for****Federal Agencies**** **

## The President has clearly challenged OMB and agencies to improve performance for citizens.

- “This Administration’s goal is to champion citizen-centered electronic government that will result in a major improvement in the federal government’s value to the citizen.”                     ~ *The President’s Management Agenda*

- “Our success depends on agencies working as a team across traditional boundaries to serve the American people, focusing on citizens rather than individual agency needs.”    ~ *President George W. Bush*

- Meeting this challenge will require OMB and agencies to **improve performance** while **reducing costs**

## The Federal Enterprise Architecture is helping OMB and agencies transform to meet the President’s challenge.

**The Federal Enterprise Architecture is helping OMB and agencies transform to meet the President’s challenge.**

| Without the FEA | With the FEA |
| --- | --- |
| “Stove-piped” agency operations and budget allocation decisions  (e.g. 50 agencies with federal drug control operations) | Collaboration where possible visibility into agency operations for ALL agencies and budget examiners |
| Disparate, less than ideal performance information to make decisions (e.g. half of PART programs evaluated could not demonstrate results) | Standardized performance data to facilitate more objective, fact-based management |
| Potentially redundant IT spending (e.g. $250 million on financial management systems) | Agencies and budget examiners can leverage existing IT capabilities before spending new money |

- “The FEA is a powerful tool for identifying both key gaps and redundant efforts and can be used to determine the most effective investment in IT.”                                                                  ~ *Budget of the United States Government, FY 2004*

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## Describe the draft PRM

Answer key questions about the draft PRM

Begin the agency comment period on the draft PRM 

- Answer key questions about the draft PRM
- Begin the agency comment period on the draft PRM

**The FEA-PMO has three objectives for today’s PRM overview session for agencies.**

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## The Federal Enterprise Architecture (FEA) Performance Reference Model (PRM)“At-A-Glance.”

| WHAT IS THE PRM? | A standardized performance measurement framework designed to:
Enhance available performance information,
Better align inputs with outcomes, and 
Identify improvement opportunities across organizational boundaries. |
| --- | --- |
|  | Agencies can use the PRM to select standard performance indicators—which may be new or coincide with those already in use—which can be tailored or “operationalized” to the specific environment. |
|  | The PRM is a flexible resource for agencies to use as they build from their existing performance measurements. |
| HOW WILL THE PRM BE USED? | The PRM can be integrated into the existing federal budget process, including the Exhibit 300 as required by OMB Circular A-11. |
|  | The PRM can mutually reinforce and work together with GPRA and current PMA Budget and Performance Integration initiatives such as the PART and Common Measures. |
| WHAT IS THE PRM’s STATUS? | A PRM Working Draft is being released for agency comment.
The FEA-PMO will address agency’s comments and change the draft PRM as needed.
A PRM Version 1.0 will be released to use in FY 2005 budget formulation. |

## The PRM is a resource that can help agencies meet many of the existing legislative and policy requirements for performance.

| Existing Requirement |  | PRM |
| --- | --- | --- |
| E-Government Act of 2002 | Collaborative performance measures |  |
| Clinger-Cohen Act of 1996 | Make IT investments based on contribution to program performance |  |
| Government Performance and Results Act of 1993 | Plan and report progress towards outputs and outcomes |  |
| Chief Financial Officers Act of 1990 and other related Acts | Provide timely, reliable, useful, and consistent financial information for decision-making |  |
| President’s Management Agenda | Integrate planning and managing for performance into budget justification and execution.  Improve performance through technology. |  |

## The PRM is consistent with and can help agencies make progress on many of the key performance initiatives that need improvements. 

| Initiative | How PRM Can Help |
| --- | --- |
| Government Performance and Results Act implementation | The PRM framework can help improve and further relate outcome and output measures in Strategic and Annual Plans and Reports.  Performance by function will facilitate producing the required government-wide Performance Plan. |
| PMA / Budget and Performance Integration | The PRM framework can help to refine the relationship between outcomes, outputs and the processes or strategies used to produce them, and the inputs or resources used.  This creates more robust information to use in budget decisions. |
| Program Assessment Rating Tool (PART) | Progress towards PRM indicators can provide enhanced information to include in PART evaluations.  PART evaluations can guide the improvement targets set using the PRM—particularly in lower-scoring PART programs. |
| Common Measures | If common measures have already been identified through other initiatives like the Common Measures they can be used directly by the PRM. |
| IT Business Cases (Exhibit 300) | The PRM can be used to identify performance indicators that show specifically how a technology investment contributes to business outputs and, ultimately, outcomes. |

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## The PRM is one of five FEA “reference models” designed to improve performance, increase collaboration, and reduce costs.

**Federal Enterprise Architecture (FEA)**

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## The PRM can help produce enhanced performance information to improve strategic and daily decision-making

The PRM can help improve the alignment and contribution of inputs (people, technology, other fixed assets) through outputs (processes and activities) to outcomes (business and customer results)

The PRM can help identify collaboration and performance improvement opportunities across traditional agency boundaries

- The PRM can help improve the alignment and contribution of inputs (people, technology, other fixed assets) through outputs (processes and activities) to outcomes (business and customer results)
- The PRM can help identify collaboration and performance improvement opportunities across traditional agency boundaries

**The PRM is a standardized framework to characterize the performance of IT initiatives in a common manner where appropriate.**

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## The FEA-PMO examined numerous existing frameworks and other sources, including:
Balanced Scorecard
Baldrige Quality Criteria
Program Logic Models
The Value Chain
Theory of Constraints
Value Measurement Methodology
Six Sigma

The FEA-PMO also examined what types of measures agencies are currently using
GPRA Strategic and Annual Plans
PART Assessments
Exhibit 300s

- Balanced Scorecard
- Baldrige Quality Criteria
- Program Logic Models
- The Value Chain
- Theory of Constraints
- Value Measurement Methodology
- Six Sigma
- The FEA-PMO also examined what types of measures agencies are currently using
- GPRA Strategic and Annual Plans
- PART Assessments
- Exhibit 300s

**The FEA-PMO is seeking the best from existing performance frameworks to create the draft PRM.**

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## The PRM’s six Measurement Areas are designed to capture the relationship between inputs, outputs, and outcomes.  Each Measurement Area contains Measurement Categories. 

**The PRM’s six Measurement Areas are designed to capture the relationship between inputs, outputs, and outcomes.  Each Measurement Area contains Measurement Categories. **

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## Each PRM Measurement Category contains specific Indicators that can be selected as appropriate for BRM Sub-functions, programs, and/or IT initiatives.

**Each PRM Measurement Category contains specific Indicators that can be selected as appropriate for BRM Sub-functions, programs, and/or IT initiatives.**

- Total # of products produced, activities performed, or services provided per relevant unit of time
- # of products produced, activities performed, or services provided per FTE
- % of resources used versus resources available for use
- # and/or % of products or services that are electronic

**Productivity & Efficiency**

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## Decision-makers then uniquely tailor or “operationalize” these Indicators to reflect the specific environment, such as the Border Security Sub-function in the BRM.

**Decision-makers then uniquely tailor or “operationalize” these Indicators to reflect the specific environment, such as the Border Security Sub-function in the BRM.**

- Total # of products produced, activities performed, or services provided per relevant unit of time
- # of products produced, activities performed, or services provided per FTE
- % of resources used versus resources available for use
- # and/or % of products or services that are electronic

**Productivity & Efficiency**

- Total # of vehicle searches per month

**BRM Sub-function:  Border Security**

**Notes:**
READ THROUGH THIS SLIDE AND USE WHITE BOARD TO DISCUSS THE THREE LEVEL FRA

WE HAVE PROPOSED SOME CHANGES TO THE ORIGINAL BUSINESS ARCHITECTURE . . . (next slide)

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## The process to use the PRM is as important as the PRM itself.  The FEA-PMO is suggesting a process that can be integrated into the existing performance and budget processes.

| Step | Description |
| --- | --- |
| Determine Line of Sight to Results | Agencies can use the concepts of logic models and the value chain to identify the critical cause and effect relationships between IT and process outputs, then to customer and mission or business outcomes. |
| Identify and Define PRM Indicators | Informed by the “line of sight,” agencies can use the PRM to identify the critical few indicators.  These indicators will be tailored or “operationalized” to suit the specific IT initiative and its environment. |
| Conduct Baseline Analysis | Within the context of the PRM Indicators chosen, agencies can conduct a baseline analysis of current performance, constraints, and capabilities.  |
| Set Improvement Targets | Considering the baseline and through benchmarking high-performers in the government and private sectors, agencies set improvement targets. |
| Explore Improvements | Possible strategies to achieve improvements targets will be identified, such as coordinating, creating or canceling processes or technology; sharing information and data; or retraining and recruiting people. |
| Select and Propose Improvements | The scope and strategy of the improvement will be discussed through existing budget documents, including the Exhibit 300 required by A-11. |
| Implement Improvements; Collect Data; and Use Performance Information in Decisions | Making improvements then tracking progress towards PRM Indicators to determine whether improvements are actually occurring.  This performance information should then be a critical aspect of daily and strategic decision-making. |

## The initial steps in this process will be of critical importance for agencies as they prepare to submit their FY 2005 budgets to OMB.

- For FY 2005, agencies will identify PRM Indicators for their major IT initiatives in the** **_**Exhibit 300 performance goals table**_
- More information on this suggested process will be available in the very near future
- OMB A-11 training
- PRM Version 1.0 release document

## Consistent with Chapter 22 of the President’s FY 2004 Budget, the PRM can be applied to any major IT initiative.  The level of PRM collaboration would correspond to each category as necessary.

| Category of IT Initiative | Example | Level of PRM Collaboration |
| --- | --- | --- |
| One agency has the lead and the initiative can be implemented through the normal, agency-specific budget process
 | IRS Free File | Low |
| More than one-agency is involved and the initiative may require joint ownership and funding
 | Initiatives that align with Border Security | Medium |
| Initiatives are common to all agencies or rise to a level of major policy significance and require PMC action to be successful | Initiatives that align with Human Resources Training and Development | High |

## When one agency has the lead such as with the IRS Free File initiative, the PRM can be used to identify performance indicators from outcomes to inputs.

## When more than one agency is involved, such as with Border Security, the PRM also can help identify indicators from outcomes to inputs.

**When more than one agency is involved, such as with Border Security, the PRM also can help identify indicators from outcomes to inputs.**

## For government-wide initiatives, such as the Resource Development and Training Sub-function of Human Resources, the PRM also can help identify inputs, outputs, and outcomes.

## Over time, progress towards PRM indicators can provide a “performance dashboard” to inform managerial and budget decisions.

**Illustrative Example**

- More thorough inspections may be necessary ...

-  ... but not so thorough to increase wait-time and reduce customer satisfaction

- Technology improvements could be explored and may allow more thorough inspections

- XX           XX

**Baseline    Target**

- XX           XX

- XX           XX

- XX           XX

- XX           XX

**XX**

**Actual**

**XX**

**XX**

**XX**

**XX**

- XX           XX

**Strategic Outcome(s)**

**SECURE THE HOMELAND**

**XX**

**Customer Results**

**Mission and Business Results**

**Processes and Activities**

**People**

**Technology**

**Other Fixed Assets**

- # of crimes committed using illegally   imported weapons

- Average wait-time at Border Inspection  station

- # of vehicle searched performed per month

- % of total border inspector positions unfilled

- % downtime for  Firearms Integrated Technology

- # of Border Inspection lanes available

## Throughout all aspects, the PRM can help OMB, CIOs, CFOs, and Program or IT Project Managers in a variety of ways.

|  | Enhanced Performance Information | Alignment and Clear “Line of Sight” | Identify Improvement Opportunities Across Boundaries |
| --- | --- | --- | --- |
| OMB | Additional information to include in budget decision-making activities | More detailed information about how IT  will contribute to outcomes | Standardized information for programs and IT initiatives with common or similar missions |
| CIOs | Additional information to use in IT Capital Planning and Investment Control activities | More clarity about what IT initiatives to select and how they will/are contributing to results | Standardized information to help identify collaboration opportunities within and outside the agency |
| CFOs | Additional information to use in GPRA and budget activities | Better articulation through GPRA of how budgetary resources and inputs contribute to outcomes | Standardized information to identify potential cost savings and performance improvements |
| Program / IT Project Managers | Additional information to manage initiatives and demonstrate contribution to outcomes | Stronger justification of proposed initiatives and articulation of how initiatives contribute to outcomes | Standardized information to identify similar programs or IT for “best practice” consultation or other collaboration |

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## Consistent with existing processes, the PRM can help agencies better manage their IT initiatives.

- Using the PRM will provide more robust performance information for agencies to use throughout their IT CPIC processes
- _Pre-Select / Select_ - Better understanding of how IT may contribute to improved program performance
- _Control_ – More robust information about progress towards intended outputs and outcomes to inform decision-making
- _Evaluate_ – More structured framework to assess whether IT initiative provided its intended benefits
- The PRM can also be a path forward to help agencies better align their EAs with performance
- Align business layer with key outputs and outcomes
- Align key technology initiatives with business layer, and by extension, outputs and outcomes

## The PRM can support the President’s Budget and Performance Integration initiative, which is taking two approaches to strengthen the link between budget dollars and results.

| Budget and Performance Integration Approach #1 | How the PRM Can Help |
| --- | --- |
| WHAT:  Creating additional performance information to inform budget decisions | Creates additional performance information at the outcome, output, and input levels to use in budget decisions |
| HOW:  Program Assessment Rating Tool (PART), which rated 50% of the programs assessed as “Results Not Demonstrated” |  |

| Budget and Performance Integration Approach #2 | How the PRM Can Help |
| --- | --- |
| WHAT:  Linking performance and cost in the federal budget | Draws “line of sight” from inputs to outputs, then outcomes |
| HOW:  Developing a performance budget format that shows how inputs are used to accomplish outputs and impact outcomes |  |

## PRM Indicators can be incorporated into GPRA plans and reports.  Outcome-oriented indicators in GPRA can inform those in the PRM.  Performance information by function can also support the government-wide performance plan GPRA requires.

**Annual Performance Reports**

**Annual Performance Plans**

**PRM Indicators can be incorporated into GPRA plans and reports.  Outcome-oriented indicators in GPRA can inform those in the PRM.  Performance information by function can also support the government-wide performance plan GPRA requires.**

**Strategic Plans**

**GPRA Requirements**

**STANDARD AND IMPROVED MEASURES**
- Outcomes / Intermediate Outcomes
- Outputs
- Inputs

- Mission
- Vision
- Goals
- Objectives
**Measures**

- Mission
- Vision
- Goals
- Objectives
**Measures**

- Mission
- Vision
- Goals
- Objectives
**Results**

## The results of PART evaluations can dictate the specific PRM indicators and targets agencies use to drive improvements.

**The results of PART evaluations can dictate the specific PRM indicators and targets agencies use to drive improvements.**

**Program **
**Assessment Rating **
**Tool**
**(PART)**

- Program Purpose & Design
- Strategic Planning
- Program Management
- Program Results

- The PRM can be applied to help improve the management capabilities and performance of lower-scoring PART programs with similar missions

## Defining standard and improved indicators using the PRM can also provide enhanced performance information to use during PART evaluations.

- PART evaluations can be complemented with more readily available, standardized, and improved performance measurement information
- 50 % of FY 2004 PART assessments “Results Not Demonstrated”
- Specific PART questions that can be informed include:

| PART Section / Question | The PRM Will Provide Enhanced     Information About ... |
| --- | --- |
| II:  Strategic Planning, Question 4:  Does the program collaborate and coordinate effectively with related programs that share similar goals and objectives? | The extent to which similar programs choose common PRM indicators |
| IV:  Program Results, Question 1:  Has the program demonstrated adequate progress in achieving its long-term outcome goal(s)? | Whether the program meets the performance targets chosen in the outcome portion of the PRM |
| IV: Program Results, Question 4:  Does the performance of this program compare favorably to other programs with similar purpose and goals? | The extent to which the program meets its performance targets compared to similar programs |

## OMB Circular A-11, specifically Section 300, provides the mechanism to integrate the PRM into the existing management and budgetary process for IT.

- The FEA-PMO is currently working within OMB to update the Exhibit 300 to accommodate the PRM
- Detailed information will be provided to agencies about this at OMB’s A-11 training to be held in early May

## Session Objectives

Performance Reference Model (PRM) Overview
Why is a PRM Necessary?

What are the FEA and PRM?

How Will the PRM be Used and by Whom?

How Does the PRM Help Other Management Efforts?

What Happens Next with the PRM?

- Performance Reference Model (PRM) Overview
- Why is a PRM Necessary?
- What are the FEA and PRM?
- How Will the PRM be Used and by Whom?
- How Does the PRM Help Other Management Efforts?
- What Happens Next with the PRM?

**AGENDA**

## In closing, the FEA-PMO looks forward to agencies’ comments on the draft Performance Reference Model.

- We would like agencies to provide comments on the PRM Working Draft
- A PRM Comment Form is also being provided
- The Working Draft and Comment Form will be e-mailed to CIOs
- One Comment Form per agency should be e-mailed to:
- _[support@feapmo.](mailto:support@feapmo.gov)__[gov](mailto:support@feapmo.gov)_
- No later than **Monday, May 19, 2002**
- Please e-mail or call if there are any questions during this comment period

_**Contact**_**:  Bob Haycock, FEA Program Manager, at Robert_D._Haycock@omb.eop.gov**