Background

IT can enrich people’s lives and improve organizational performance. For  example, during the last two decades the Internet has matured from being  a means for academics and scientists to communicate with each other to  a national resource where citizens can interact with their government in  many ways, such as by receiving services, supplying and obtaining  information, asking questions, and providing comments on proposed  rules.
While investments in IT have the potential to improve lives and  organizations, some federally funded IT projects can—and have— become risky, costly, unproductive mistakes. As we have described in  numerous reports and testimonies, federal IT projects too frequently incur  cost overruns and schedule slippages while contributing little to mission- related outcomes. Further, while IT should enable government to better  serve the American people, the federal government has not achieved  expected productivity improvements—despite spending more than $600  billion on IT over the past decade.

		Roles and Responsibilities for Federal IT Management

Over the last two decades, Congress has enacted several laws to assist  agencies and the federal government in managing IT investments. Key  laws include the Paperwork Reduction Act of 1995, the Clinger-Cohen  Act of 1996, and the E-Government Act of 2002. Also, the GPRA  (Government Performance and Results Act) Modernization Act of 2010  includes IT management as a priority goal for improving the federal  government.
Paperwork Reduction Act of 1995. The act specifies OMB and agency  responsibilities for managing information resources, including the  management of IT. Among its provisions, this law establishes agency  responsibility for maximizing the value and assessing and managing  the risks of major information systems initiatives. It also requires that  OMB develop and oversee policies, principles, standards, and  guidelines for federal agency IT functions, including periodic  evaluations of major information systems.
Clinger-Cohen Act of 1996. The act places responsibility for managing  investments with the heads of agencies and establishes CIOs to  advise and assist agency heads in carrying out this responsibility.  Additionally, this law requires OMB to establish processes to analyze,  track, and evaluate the risks and results of major capital investments  in information systems made by federal agencies and report to  Congress on the net program performance benefits achieved as a  result of these investments.
E-Government Act of 2002. The act establishes a federal e- government initiative, which encourages the use of web-based  Internet applications to enhance the access to and delivery of  government information and services to citizens, business partners,  employees, and agencies at all levels of government. The act also  requires OMB to report annually to Congress on the status of e- government initiatives. In these reports, OMB is to describe the  administration’s use of e-government principles to improve  government performance and the delivery of information and services  to the public.
GPRA (Government Performance and Results Act) Modernization Act  of 2010. The act establishes a new framework aimed at taking a more  crosscutting and integrated approach to focusing on results and  improving government performance. It requires OMB, in coordination  with agencies, to develop long-term, outcome-oriented goals for a  limited number of crosscutting policy areas at least every four years.  The act specifies that these goals should include five areas: financial  management, human capital management, IT management,  procurement and acquisition management, and real property  management. On an annual basis, OMB is to provide information on  how these long-term crosscutting goals will be achieved.
As set out in these laws, OMB is to play a key role in helping federal  agencies manage their investments by working with them to better plan,  justify, and determine how much they need to spend on projects and how  to manage approved projects. Within OMB, the Office of E-government  and Information Technology, headed by the Federal CIO, directs the  policy and strategic planning of federal IT investments and is responsible  for oversight of federal technology spending. In addition, the Office of  Federal Procurement Policy (OFPP) is responsible for shaping the  policies and practices federal agencies use to acquire the goods and  services they need to carry out their missions.
Agency CIOs are also expected to have a key role in IT management.  Federal law, specifically the Clinger-Cohen Act, has defined the role of  the CIO as the focal point for IT management, requiring agency heads to  designate CIOs to lead reforms that would help control system  development risks; better manage technology spending; and achieve real,  measurable improvements in agency performance.
In addition, the CIO Council—comprised of the CIOs and Deputy CIOs of  28 agencies and chaired by OMB’s Deputy Director for Management—is  the principal interagency forum for improving agency practices related to  the design, acquisition, development, modernization, use, sharing, and  performance of federal information resources. The CIO Council is  responsible for developing recommendations for overall federal IT  management policy, sharing best practices, including the development of  performance measures, and identifying opportunities and sponsoring  cooperation in using information resources.

		Federal IT Reform Plan Strives to Address Persistent Challenges

After assessing the most persistent challenges in acquiring, managing,  and operating IT systems, in December 2010, the Federal CIO  established a 25-point IT Reform Plan designed to address challenges in  IT acquisition, improve operational efficiencies, and deliver more IT value  to the American taxpayer. The actions were planned to be completed in  three different time frames: (1) within 6 months (by June 2011), (2)  between 6 and 12 months (by December 2011), and (3) between 12 and  18 months (by June 2012). Several different organizations were assigned  ownership of the key action items, including the Federal CIO, the CIO  Council, the General Services Administration (GSA), Office of Personnel  Management (OPM), OFPP, the Small Business Administration, and  other federal agencies. Table 1 contains detailed information on the  action items in the IT Reform Plan. Shaded items are those selected for  review in this report.
Given the challenges that federal agencies have experienced in acquiring  and managing IT investments, we have issued a series of reports aimed  at improving federal IT management over the last decade. Our reports  cover a variety of topics, including data center consolidation, cloud  computing, CIO responsibilities, system acquisition challenges, and  modular development. Key reports that address topics covered in the IT  Reform Plan include:
Data center consolidation. In July 2011, we reported on the status of  OMB’s federal data center consolidation initiative. Under this  initiative, OMB required 24 participating agencies to submit data  center inventories and consolidation plans by the end of August 2010.  However, we found that only one of the agencies submitted a  complete data center inventory and no agency submitted a complete  data center consolidation plan. We concluded that until these  inventories and plans are complete, agencies might not be able to  implement their consolidation activities and realize expected cost  savings. We recommended that agencies complete the missing  elements in their plans and inventories. In response to our  recommendations, in October and November 2011, the agencies  updated their inventories and plans. We have ongoing work assessing  the agencies’ revised plans, and in February 2012, we reported that  our preliminary assessment of the updated plans showed that not all  agency plans were updated to include all required information.
Cloud computing. In May 2010, we reported on multiple agencies’  efforts to ensure the security of governmentwide cloud computing. We  noted that while OMB, GSA, and the National Institute of Standards  and Technology (NIST) had initiated efforts to ensure secure cloud  computing, significant work remained to be completed.OMB had not yet finished a cloud computing strategy; GSA had  begun a procurement for expanding cloud computing services, but  had not yet developed specific plans for establishing a shared  information security assessment and authorization process; and NIST  had not yet issued cloud-specific security guidance. We made several  recommendations to address these issues. Specifically, we  recommended that OMB establish milestones to complete a strategy  for federal cloud computing and ensure it addressed information  security challenges. OMB subsequently published a strategy which  addressed the importance of information security when using cloud  computing, but did not fully address several key challenges  confronting agencies. We also recommended that GSA consider  security in its procurement for cloud services, including consideration  of a shared assessment and authorization process. GSA has since  developed an assessment and authorization process for systems  shared among federal agencies. Finally, we recommended that NIST  issue guidance specific to cloud computing security. NIST has since  issued multiple publications which address such guidance.
More recently, in October 2011, we testified that 22 of 24 major  federal agencies reported that they were either concerned or very  concerned about the potential information security risks associated  with cloud computing. These risks include being dependent on the  security practices and assurances of vendors and the sharing of  computing resources. We stated that these risks may vary based on  the cloud deployment model. Private clouds, whereby the service is  set up specifically for one organization, may have a lower threat  exposure than public clouds, whereby the service is available to any  paying customer. Evaluating this risk requires an examination of the  specific security controls in place for the cloud’s implementation.
We also reported that the CIO Council had established a cloud  computing Executive Steering Committee to promote the use of cloud  computing in the federal government, with technical and  administrative support provided by GSA’s Cloud Computing Program  Management Office, but had not finalized key processes or guidance.  A subgroup of this committee had developed the Federal Risk and  Authorization Management Program, a governmentwide program to  provide joint authorizations and continuous security monitoring  services for all federal agencies, with an initial focus on cloud  computing. The subgroup had worked with its members to define  interagency security requirements for cloud systems and services and  related information security controls.
Best practices in IT acquisition. In October 2011, we reported on best  practices in IT acquisitions in the federal government. Specifically,  we identified nine factors critical to the success of three or more of   The factors most commonly identified include  seven IT investments.active engagement of stakeholders, program staff with the necessary  knowledge and skills, and senior department and agency executive  support for the program. We reported that while these factors will not  necessarily ensure that federal agencies will successfully acquire IT  systems because many different factors contribute to successful  acquisitions, they may help federal agencies address the well- documented acquisition challenges they face.
IT spending authority. In February 2008, we reported that the  Department of Veterans Affairs had taken important steps toward a  more disciplined approach to ensuring oversight of and accountability  for the department’s IT budget and resources.  These steps included  providing the department’s CIO responsibility for ensuring that there  are controls over the budget and for overseeing all capital planning  and execution, and designating leadership to assist in overseeing  functions such as portfolio management.
GAO, Information Technology: VA Has Taken Important Steps to Centralize Control of  Its Resources, but Effectiveness Depends on Additional Planned Actions, GAO-08-449T  (Washington, D.C.: Feb. 13, 2008).
Investment review and oversight. During the past several years, we  issued numerous reports and testimonies on OMB’s initiatives to  highlight troubled IT projects. We made multiple recommendations  to OMB and federal agencies to enhance the oversight and  transparency of federal IT projects. For example, in 2005 we  recommended that OMB develop a central list of projects and their  deficiencies, and analyze that list to develop governmentwide and  agency assessments of the progress and risks of the investments,  identifying opportunities for continued improvement. In 2006, we  recommended that OMB develop a single aggregate list of high-risk  projects and their deficiencies and use that list to report to Congress  on progress made in correcting high-risk problems. As a result,  OMB started publicly releasing aggregate data on its internal list of  mission-critical projects that needed to improve (called its  Management Watch List) and disclosing the projects’ deficiencies.  The agency also established a High-Risk List, which consisted of  projects identified as requiring special attention from oversight  authorities and the highest levels of agency management.
Two different budget submissions, called exhibit 53s and exhibit 300s, provide the data  accessible through the IT Dashboard. Exhibit 53s list all of the IT investments and their  associated costs within a federal organization. An Exhibit 300, also called the Capital  Asset Plan and Business Case, is used to justify resource requests for major IT  investments and is intended to enable an agency to demonstrate, to its own management  and to OMB, that a major investment is well planned.
Federal CIO. We have since completed three successive reviews of  the data on the IT Dashboard and reported that while it is an important  tool for reporting and monitoring major IT projects, the cost and  schedule ratings were not always accurate for selected agencies.  We made recommendations to improve the accuracy of the data and,  in our most recent report, found that the accuracy had improved.
GAO, Information Technology: OMB Needs to Improve Its Guidance on IT Investments,  GAO-11-826 (Washington, D.C.: Sept. 29, 2011). that OMB update its guidance to establish measures of accountability  for ensuring that CIOs’ responsibilities are fully implemented and  require agencies to establish internal processes for documenting  lessons learned. OMB officials generally agreed with our  recommendations and, in August 2011, issued a memo to agencies  emphasizing the CIO’s role in driving the investment review process  and responsibility over the entire IT portfolio for an agency. The  memo identified four areas in which the CIO should have a lead role:  IT governance, program management, commodity services, and  information security.

	OMB and Key Federal Agencies Have Made Progress on IT Reform Action Items, But Much Remains to Be Done

OMB and key federal agencies have made progress on selected action  items identified in the IT Reform Plan, but there are several areas where  more remains to be done. Of the 10 key action items we reviewed, 3 were  completed and the other 7 were partially completed by December 2011.  The action items that are behind schedule share a common reason for  the delays: the complexity of the initiatives. In all seven of the cases,  OMB and the federal agencies are still working on the initiatives.
In a December 2011 progress report on its IT Reform Plan, OMB reported  that it made greater progress than we determined. The agency reported  that of the 10 action items, 7 were completed and 3 were partially  completed. OMB officials from the Office of E-government and  Information Technology explained that the reason for the difference in  assessments is that they believe that the IT Reform Plan has served its  purpose in acting as a catalyst for a set of broader initiatives. They noted  that work will continue on all of the initiatives even after OMB declares the  related action items to be completed under the IT Reform Plan. We  disagree with this approach. In prematurely declaring the action items to  be completed, OMB risks losing momentum on the progress it has made  to date.
Table 2 provides both OMB’s and our assessments of the status of the  key action items, with action items rated as “completed” if all of the  required activities identified in the reform plan were completed, and  “partially completed” if some, but not all, of the required activities were  completed.
Until OMB and the agencies complete the action items called for in the IT  Reform Plan, the benefits of the reform initiatives—including increased  operational efficiencies and more effective management of large-scale IT  programs—may be delayed. With the last of the action items in the IT  Reform Plan due to be completed by June 2012, it will be important for  OMB and the agencies to ensure that the action items due at earlier  milestones are completed as soon as possible.

	OMB and Key Agencies Plan to Address Items That We Found to Be Behind Schedule, But Lack Defined Time Frames for Completing Them

According to leading practices in industry and government, effective  planning is critical to successfully managing a project. Effective project  planning includes taking corrective actions when project deliverables fall  behind schedule and defining time frames for completing the corrective  actions. As noted earlier in this report, we identified seven action items  that are behind schedule or falling short of the IT Reform Plan’s  requirements. OMB and the agencies have plans for addressing all seven  of the action items that we identified as behind schedule, but lack time  frames for completing five of them. The seven action items we identified  are:
Data center consolidation. We noted that agencies’ data center  consolidation plans do not include all required elements. In July 2011,  OMB directed agencies to complete the missing elements in their  plans. The agencies are expected to provide an update on their plans  in September 2012.
Cloud-first policy. We noted that agencies’ migration plans were  missing selected elements. An OMB official stated while OMB did not  review the quality of agency migration plans in order to close the  reform plan action item, the official responsible for the cloud-first  initiative would continue to work with agencies to ensure that the  initiative was successful. There are no time frames for agencies to  complete their migration plans.
Best practice collaboration portal. We found that the best practices  collaboration platform is missing key features that would allow the  information to be accessible and useable. A CIO Council official noted  that the council plans to improve the portal over time by adding the  ability to load artifacts, allow users to chat online, contain an expertise  repository, and allow or encourage labeling of information to improve  the search for artifacts within the platform. However, the CIO Council  has not established a time frame for providing additional functionality  to the web-based collaboration portal.
Guidance and templates for modular contracting. OFPP has not  issued guidance or the required templates and samples supporting  modular development. It plans to continue developing guidance and  templates to support modular development, and the first draft of this  guidance is currently undergoing initial review. OFPP plans to issue  its guidance and templates in spring 2012.
Obtaining new IT budget authorities. OMB is behind schedule in  obtaining new IT budget authorities. OMB officials stated that it plans  to propose new authorities as part of the 2013 President’s Budget,  and intends to work with congressional committees throughout the  budget rollout process. However, OMB has not yet established time  frames for completing this activity.
Consolidating commodity IT under the agency CIO. OMB is behind  schedule in consolidating commodity IT spending under agency CIOs.  OMB plans to propose new spending models for commodity IT in the  2013 President’s Budget, and to work with Congress to implement  these new models. However, OMB has not established a time frame  for completing this activity.
Redefining roles of agency CIOs and the CIO Council. OMB  acknowledges that not all agency CIOs have authority for a full  portfolio of IT investments and plans to collect data from agencies  during spring 2012 to determine the extent to which the CIOs have  this authority. At that point, OMB should be better positioned to  determine what more needs to be done to ensure CIO roles are  redefined. However, there is no time frame for completing this activity.
Until OMB and the agencies establish time frames for completing  corrective actions, they increase the risk that key actions will not be  effectively managed to closure. For example, without cloud migration  plans, agencies risk maintaining legacy systems long after the system  has been replaced by one operating in the cloud. Further, these  incomplete actions reduce the likelihood of achieving the full range of  benefits promised by the IT reform initiatives.

	OMB Has Not Established Measures for Evaluating Results on Most IT Reform Initiatives

The importance of performance measures for gauging the progress of  programs and projects is well recognized. In the past, OMB has directed  agencies to define and select meaningful outcome-based performance  measures that track the intended results of carrying out a program or  activity. Additionally, as we have previously reported, aligning  performance measures with goals can help to measure progress toward  those goals, emphasizing the quality of the services an agency provides  or the resulting benefits to users. Furthermore, industry experts describe  performance measures as necessary for managing, planning, and  monitoring the performance of a project against plans and stakeholders’  needs. According to government and industry best practices,  performance measures should be measurable, outcome-oriented, and  actively tracked and managed.
Recognizing the importance of performance measurement, OMB and  GSA have established measures for 4 of the 10 action items we  reviewed: data center consolidation, shifting to cloud computing, using  contract vehicles to obtain Infrastructure-as-a-Service, and reforming  investment review boards. Moreover, OMB reported on three of these  measures in the analytical perspectives associated with the President’s  fiscal year 2013 budget. Specifically, regarding data center consolidation,  OMB reported that agencies were on track to close 525 centers by the  end of 2012 and expected to save $3 billion by 2015. On the topic of  cloud computing, OMB reported that agencies had migrated 40 services  to cloud computing environments in 2011 and expect to migrate an  additional 39 services in 2012. Regarding investment review boards,  OMB reported that agency CIOs held 294 TechStat reviews and had  achieved more than $900 million in cost savings, life cycle cost  avoidance, or reallocation of funding.
However, OMB has not established performance measures for 6 of the 10  action items we reviewed. For example, OMB has not established  measures related to the best practices collaboration platform, such as  number of users, number of hits per query, and customer satisfaction.  Further, while OMB has designed the guidance and curriculum for  developing a cadre of IT acquisition professionals, it has not established  measures for tracking agencies development of such a cadre. Table 3  details what performance measures and goals, if any, are associated with  the action item.
OMB officials, including two policy analysts within the Office of E- government and Information Technology who are responsible for the IT  Reform Plan, stated that they do not believe that it is appropriate for OMB  to establish measures for the action items in the IT Reform Plan. The  officials explained that they believe that the purpose of the IT Reform  Plan is to act as a catalyst for initiatives that are expected to continue  outside of the plan. For example, the IT Reform Plan called for OMB and  agencies to complete several discrete activities to push forward on data  center consolidation, but the Federal Data Center Consolidation Initiative  will continue on well after the deliverables noted in the reform plan are  completed. They acknowledged that it would be appropriate to have  performance measures for each of the broader initiatives outside of the IT  Reform Plan, but noted that this should be the responsibility of the group  running each initiative.
We disagree with OMB’s view and believe that performance measures  are a powerful way to motivate people, communicate priorities, and  improve performance. In our assessment, we sought any available  performance measures associated with either the action item or the  broader initiative, and in cases like the data center consolidation initiative,  gave credit for the measures that were established for the initiative.  However, we found that most action items and initiatives lacked any  performance measures. Moreover, if OMB encourages individual  agencies to establish measures, there will likely be multiple different  measures for the action items and it would be more difficult to  demonstrate governmentwide progress. Therefore, we believe that it is  appropriate for OMB to establish performance measures for each of the  action items in order to effectively measure the results of the IT Reform  Plan. Until OMB establishes and begins tracking measurable, outcome- oriented performance measures for each of the action items, the agency  will be limited it its ability to evaluate progress that has been made and  whether or not the initiative is achieving its goals.

	Conclusions

OMB and selected agencies have made strides in implementing the IT  Reform Plan, including pushing agencies to consolidate data centers,  migrating federal services to cloud computing, improving the skills of IT  acquisition professionals, and strengthening the roles and accountability  of CIOs. However, several key reform items are behind schedule and  OMB lacks time frames for completing most of them. Despite reporting  that selected actions are completed, OMB and federal agencies are still  working on them. This sends an inconsistent message on the need to  maintain focus on these important initiatives. Moving forward, it will be  important for OMB to accurately characterize the status of the action  items in the IT Reform Plan in order to keep agencies’ focus and  momentum on these important reform initiatives.
OMB has not established performance measures for gauging the success  of most of its reform initiatives. For example, while OMB is tracking the  number of services that agencies move to a cloud computing environment  and the number of data center closures, it is not tracking the usefulness  of its efforts to develop a best practices collaboration portal or a cadre of  IT acquisition professionals.
Until OMB and the agencies complete the action items called for in the IT  Reform Plan, establish time frames for completing corrective actions, and  establish performance measures to track the results of the reform  initiatives, the government may not be able to realize the full promise of  the IT Reform Plan. The IT Reform Plan’s goals of improving government  IT acquisitions and the efficiency of government operations are both  ambitious and important, and they warrant a more structured approach to  ensure actions are completed and results are achieved.

	Recommendations for Executive Action

To help ensure the success of IT reform initiatives, we are making four  recommendations to OMB. Specifically we are recommending that the  Director of the Office of Management and Budget direct the Federal Chief  Information Officer to ensure that the action items called for in the IT Reform Plan are  completed by the responsible parties prior to the completion of the IT  Reform Plan’s 18 month deadline of June 2012, or if the June 2012  deadline cannot be met, by another clearly defined deadline; provide clear time frames for addressing the shortfalls associated with  the IT Reform Plan action items; accurately characterize the status of the IT Reform Plan action items  in the upcoming progress report in order to keep momentum going on  action items that are not yet completed; and establish outcome-oriented measures for each applicable action item  in the IT Reform Plan.
We are also making two recommendations to the Secretaries of  Homeland Security and Veterans Affairs and to the Attorney General of  the Department of Justice to address action items in the IT Reform Plan  where the agencies have fallen behind. Specifically, we are  recommending that they direct their respective agency CIOs to complete elements missing from the agencies’ plans for migrating  services to a cloud computing environment, as applicable, and identify and report on the commodity services proposed for migration  to shared services.

	Agency Comments and Our Evaluation

We received comments on a draft of our report from OMB; the  Departments of Homeland Security, Justice, and Veterans Affairs; and  GSA. OMB agreed with two recommendations and disagreed with two  recommendations; the Departments of Homeland Security, Justice, and  Veterans Affairs generally agreed with our recommendations; and GSA  did not agree or disagree with our recommendations. Each agency’s  comments are discussed in more detail below.
OMB’s Federal CIO provided written comments on a draft of this  report, as well as supplementary comments via e-mail. The written  comments are provided in appendix II. The Federal CIO stated that  OMB believes our analysis and findings have been critical to driving IT  reforms across the federal government, and that OMB plans to use  this report to continue the positive momentum on the IT Reform Plan.  In addition, the Federal CIO stated that despite agreeing with many of  the observations and recommendations in the draft report, OMB had  concerns with selected recommendations, observations, and the  scope of our review. The agency’s comments and, where applicable,  our evaluation follow:
OMB agreed with our recommendation to ensure that action items  called for in the IT Reform Plan are completed by the end of the IT  Reform Plan’s 18-month deadline of June 2012 and stated that  OMB intends to complete the action items by the deadline.
OMB agreed with our recommendation to provide clear time  frames for addressing the shortfalls associated with the IT Reform  Plan action items and stated that OMB will provide clear time  frames where applicable.
OMB disagreed with our recommendation that the agency  accurately characterize the status of IT Reform Plan action items  in the upcoming progress report. The agency stated that it has  accurately characterized the completeness of the action items,  and therefore, the recommendation does not apply. As stated in  this report, we do not agree with OMB’s characterization of four  action items: data center consolidation, cloud-first policy, best  practices collaboration portal, and redefining roles of agency CIOs  and the CIO Council. OMB considers these action items to be  completed. We do not.
While OMB has made progress in each of these areas, we found  activities specified in the IT Reform Plan that have not yet been  completed. Specifically, in the area of data center consolidation,  we found that selected agency plans are still incomplete; in the  move to cloud computing, selected agency migration plans lack  key elements; in the area of the best practices portal, we found  that the portal lacks key features that would allow the information  to be accessible and useful to program managers; and in revising  CIO roles, we identified an agency that does not yet have the  envisioned authority over IT acquisitions. Further, in a recent  memorandum to agency CIOs, the Federal CIO acknowledged  that agency data center consolidation plans are incomplete and  required agencies to provide an annual update to the plans. In  addition, our assessment that the cloud migration plans are  incomplete was affirmed by the three agencies we reviewed  agreeing with our recommendation that they complete cloud  migration plans. Thus, we believe that our recommendation to  OMB to accurately characterize the status of IT Reform action  items is valid.
OMB disagreed with our recommendation to establish outcome- oriented measures for each applicable action item in the IT  Reform Plan, noting that the agency measured the completeness  of the IT Reform actions and not the performance measures  associated with broader initiatives. OMB also suggested that we  erroneously gave the agency credit for performance measures  associated with broader initiatives on data center consolidation,  cloud computing, and investment review boards. We acknowledge  that some of the action items in the IT Reform Plan are subsets of  broader initiatives, and where applicable, we gave credit for  having measures associated with the broader initiatives. We  continue to believe that this approach is appropriate because the  action items and the broader initiatives are intrinsically intertwined.  For instance, it would have been unfair to state that there are no  measures associated with consolidating federal data centers when  such measures clearly exist.
Moreover, the point remains that there are multiple action items in  the IT Reform Plan that are not aligned with broader initiatives and  for which there are no measures. Examples include the best  practices portal, development of a cadre of specialized IT  acquisition professionals, and establishing budget models that  align with modular development. Given that the purpose of the IT  Reform Plan is to achieve operational efficiencies and improve the  management of large-scale IT programs, we continue to assert  that it is appropriate to establish performance measures to monitor  the IT Reform Plan’s results. According to the administration’s  public website intended to provide a window on efforts to deliver a  more effective, smarter, and leaner government, performance  measurement is a necessary step in improving performance and  that it helps set priorities, tailor actions, inform on progress, and  diagnose problems. Until OMB establishes and tracks  measureable, outcome-oriented performance measures for each  of the action items in the IT Reform Plan, the agency will be  limited in its ability to evaluate progress that has been made and  whether or not the initiative is achieving its goals.
OMB stated that the title of our draft report (Information  Technology Reform: Progress is Mixed; More Needs to Be Done  to Complete Actions and Measure Results) did not accurately  capture the substantial and overwhelmingly positive progress  made to date. Moreover, OMB stated that the responsible entities  have completed 81.5 percent of the required activities associated  with the 10 action items we reviewed. We acknowledge the  progress OMB and agencies have made on IT Reform Plan items  in this report and have modified the title of our report to reflect that  progress. However, our analysis of the percentage of completed  activities differs from OMB’s calculations. The 10 action items we  reviewed include 31 distinct required activities (see table 1). We  found that the responsible entities completed 18 of these  activities—a 58 percent completion rate.
OMB also stated that our assessment should acknowledge that  OMB does not have the statutory authority to carry out certain  action items without congressional action. These action items  involved creating IT budget models to align with modular  development and consolidating commodity IT spending under the  agency CIOs. The Federal CIO stated that although OMB has  taken steps to engage with Congress, the agency cannot  unilaterally grant budget flexibilities or consolidate spending. While  it is true that completing these items depends upon congressional  action, according to the IT Reform Plan, it is the responsibility of  OMB and the federal agencies to work with Congress to propose  budget models to address these items.
In general, OMB stated that it will continue to drive reform  throughout the federal government via the completion of the  remaining actions in the IT Reform Plan, as well as continuing to  work with agencies as they implement broader initiatives such as  data center consolidation and the transition to cloud computing.
In supplementary comments provided via e-mail, the Federal CIO  also expressed concerns with the scope of our report, stating that  the intent of the IT Reform Plan was not to reform all federal IT,  but to establish some early wins to garner momentum for OMB’s  broader initiatives. The Federal CIO also noted that OMB has  been consistent in publicizing the IT Reform Plan as an 18-month  plan with discrete goals designed to augment and accelerate  broader initiatives that existed before the IT Reform Plan was  launched and would continue after the plan has been completed.
We believe that the scope of our review is appropriate. Since its  inception, the scope of our review has focused on the action items  and supporting activities noted in the IT Reform Plan. All of the  required activities listed in table 1 in the background section of this  report are listed in the IT Reform Plan. Moreover, we did not  evaluate activities that are outside of the IT Reform Plan, such as  OMB’s efforts to establish a cost model for agencies to use in  estimating the costs and savings of data center consolidation.  Further, we agree that to completely reform IT, OMB and agencies  must undertake activities beyond the IT Reform Plan’s 18-month  time frame. The activities within the IT Reform Plan are essential  building blocks that will carry on well beyond the IT Reform Plan’s  end.
In written comments, the Department of Homeland Security’s Director  of Departmental GAO-Office of Inspector General Liaison Office  concurred with our recommendations and identified steps that the  agency is undertaking to address them. The department’s written  comments are provided in appendix III.
In written comments, the Department of Justice’s Assistant Attorney  General for Administration generally agreed with our  recommendations and identified steps that the agency has  undertaken to address them. The department’s written comments are  provided in appendix IV.
In written comments, the Chief of Staff at the Department of Veterans  Affairs agreed with our recommendations and identified steps that the  department is taking to implement them. The department’s written  comments are provided in appendix V.
In comments provided via e-mail, a Management and Program  Analyst within GSA’s Office of Administrative Services stated that the  agency had no official response or technical comments on the draft  report.
As agreed with your offices, unless you publicly announce the contents of  this report earlier, we plan no further distribution until 30 days from the  report date. At that time, we will send copies to interested congressional  committees, the secretaries and administrators of the departments and  agencies addressed in this report, and other interested parties. In  addition, the report will be available at no charge on the GAO website at  http://www.gao.gov.
If you or your staffs have any questions on the matters discussed in this  report, please contact me at (202) 512-9286 or pownerd@gao.gov.  Contact points for our Offices of Congressional Relations and Public  Affairs may be found on the last page of this report. GAO staff who made  major contributions to this report are listed in appendix VI.

Appendix I: Objectives, Scope, and Methodology

Our objectives were to (1) evaluate the progress the Office of  Management and Budget (OMB) and key federal agencies have made on  selected action items in the Information Technology (IT) Reform Plan, (2)  assess the plans for addressing any action items that are behind  schedule, and (3) assess the extent to which sound measures are in  place to evaluate the success of the IT reform initiatives.
In establishing the scope of our engagement, we selected ten action  items for review, focusing on action items that (1) were due at the 6 or 12  month milestones because these were expected to be completed during  our review, (2) covered multiple different topic areas, and (3) were  considered by internal and OMB subject matter experts to be the more  important items. These action items are:
Complete detailed implementation plans to consolidate 800 data  centers by 2015.
Shift to a “cloud first” policy.
Stand-up contract vehicles for secure Infrastructure-as-a-Service  solutions.
Launch a best practices collaboration platform.
Design a cadre of specialized IT acquisition professionals.
Issue contracting guidance and templates to support modular  development.
Work with Congress to create IT budget models that align with  modular development.
Work with Congress to consolidate Commodity IT spending under  agency Chief Information Officers (CIO).
Reform and strengthen Investment Review Boards.
Redefine the role of agency CIOs and the CIO Council.
In addition, in the seven cases where multiple agencies are identified as a  responsible entity for the action item, we selected three civilian agencies  (the Departments of Homeland Security, Veterans Affairs, and Justice)  based on factors including (1) high levels of IT spending in fiscal year  2011, (2) poor performance on the IT Dashboard, (3) high number of  major IT investments in fiscal year 2011, and (4) coverage of agencies  that were not included on other GAO reviews of IT reform initiatives.
To evaluate OMB and federal agencies progress in implementing the IT  Reform Plan, we evaluated efforts by the entities responsible for each of  the action items, including OMB, the General Services Administration  (GSA), the Chief Information Officers (CIO) Council, and selected  agencies. For each of the 10 action items in the IT Reform Plan, we  reviewed OMB’s guidance and identified required activities. We compared  agency documentation to these requirements, and identified gaps and  missing elements. We rated each action item as “completed” if the  responsible agencies demonstrated that they completed the required  activities on or near the due date, and “partially completed” if the  agencies demonstrated that they completed part of the required activities.  We interviewed agency officials to clarify our initial findings and to  determine why elements were incomplete or missing.
To assess the plans for addressing any action items that are behind  schedule, we identified the agencies’ plans for addressing the schedule  shortfalls and compared these to sound project planning practices  identified by organizations recognized for their experience in project  management and acquisition processes. We also interviewed relevant  agency officials regarding the reasons that their activities were behind  schedule and the impact of any shortfalls in their mitigation plans.
To assess the extent to which sound measures are in place to evaluate  success, we determined whether performance measures were applicable  for each of the selected action items, and if so, how agencies were  tracking these measures. We compared these measures to best practices  in IT performance management identified by leading industry and  government organizations and assessed other options for measuring performance. In addition, we interviewed OMB and selected agency  officials regarding progress, plans, and measures. As we were completing  our audit work, OMB reported making progress in its efforts to consolidate  data centers, transition to a cloud computing environment, and strengthen  investment review boards, and provided data on specific measures within  each of these areas. We assessed the reliability of the data provided on  these measures by obtaining information from agency officials and from  the CIO Council regarding their efforts to ensure the reliability of the data.  While we identified limitations in the quality of the data that agencies  reported, we determined that this data was sufficiently reliable for the  purpose of presenting a general overview of progress in establishing  performance measures.
We conducted our work at multiple agencies’ headquarters in the  Washington, D.C., metropolitan area. We conducted this performance  audit from August 2011 to April 2012 in accordance with generally  accepted government auditing standards. Those standards require that  we plan and perform the audit to obtain sufficient, appropriate evidence to  provide a reasonable basis for our findings and conclusions based on our  audit objectives. We believe that the evidence obtained provides a  reasonable basis for our findings and conclusions based on our audit  objectives.

Appendix II: Comments from the Office of Management and Budget

Appendix III: Comments from the Department of Homeland Security

Appendix IV: Comments from the Department of Justice

Appendix V: Comments from the Department of Veterans Affairs

Appendix VI: GAO Contact and Staff Acknowledgments

	GAO Contact

	Staff Acknowledgments

In addition to the contact named above, individuals making contributions  to this report included Colleen Phillips (Assistant Director), Cortland  Bradford, Rebecca Eyler, Kathleen S. Lovett, and Jessica Waselkow.

Related GAO Products

	Best Practices in Information Technology Acquisition

Information Technology: Critical Factors Underlying Successful Major  Acquisitions. GAO-12-7. Washington, D.C.: October 21, 2011.

	CIO Responsibilities

Federal Chief Information Officers: Opportunities Exist to Improve Role in  Information Technology Management. GAO-11-634. Washington, D.C.:  September 15, 2011.
Information Technology: VA Has Taken Important Steps to Centralize  Control of Its Resources, but Effectiveness Depends on Additional  Planned Actions. GAO-08-449T. Washington, D.C.: February 13, 2008.

	Cloud Computing

Information Security: Additional Guidance Needed to Address Cloud  Computing Concerns. GAO-12-130T. Washington, D.C.: October 6, 2011.
Information Security: Governmentwide Guidance Needed to Assist  Agencies in Implementing Cloud Computing. GAO-10-855T. Washington,  D.C.: July 1, 2010.
Information Security: Federal Guidance Needed to Address Control  Issues with Implementing Cloud Computing. GAO-10-513. Washington,  D.C.: May 27, 2010.

	Data Center Consolidation

Data Center Consolidation: Agencies Need to Complete Inventories and  Plans to Achieve Expected Savings. GAO-11-565. Washington, D.C.: July  19, 2011.

	Duplication and Overlap

Follow-up on 2011 Report: Status of Actions Taken to Reduce  Duplication, Overlap, and Fragmentation, Save Tax Dollars, and Enhance  Revenue. GAO-12-453SP. Washington, D.C.: February 28, 2012.  2012 Annual Report: Opportunities to Reduce Duplication, Overlap and  Fragmentation, Achieve Savings, and Enhance Revenue. GAO-12- 342SP. Washington, D.C.: February 28, 2012.
Information Technology: Departments of Defense and Energy Need to  Address Potentially Duplicative Investments. GAO-12-241. Washington,  D.C.: February 17, 2012.
Information Technology: Potentially Duplicative Investments Exist at the  Departments of Defense and Energy. GAO-12-462T. Washington, D.C.:  February 17, 2012.
Opportunities to Reduce Potential Duplication in Government Programs,  Save Tax Dollars, and Enhance Revenue. GAO-11-318SP. Washington,  D.C.: March 1, 2011.

	Information Technology Investment Management

Investment Management: IRS Has a Strong Oversight Process but Needs  to Improve How It Continues Funding Ongoing Investments. GAO-11- 587. Washington, D.C.: July 20, 2011.
Information Technology: Investment Oversight and Management Have  Improved but Continued Attention Is Needed. GAO-11-454T. Washington,  D.C.: March 17, 2011.
Information Technology: Treasury Needs to Strengthen Its Investment  Board Operations and Oversight. GAO-07-865. Washington, D.C.: July  23, 2007.
Information Technology: DHS Needs to Fully Define and Implement  Policies and Procedures for Effectively Managing Investments. GAO-07- 424. Washington, D.C.: April 27, 2007.

	Investment Review and Office of Management and Budget Oversight

Information Technology: OMB Needs to Improve Its Guidance on IT  Investments. GAO-11-826. Washington, D.C.: September 29, 2011.
Information Technology: Management and Oversight of Projects Totaling  Billions of Dollars Need Attention. GAO-09-624T. Washington, D.C.: April  28, 2009.
Information Technology: OMB and Agencies Need to Improve Planning,  Management, and Oversight of Projects Totaling Billions of Dollars. GAO- 08-1051T. Washington, D.C.: July 31, 2008.
Information Technology: Further Improvements Needed to Identify and  Oversee Poorly Planned and Performing Projects. GAO-07-1211T.  Washington, D.C.: September 20, 2007.
Information Technology: Improvements Needed to More Accurately  Identify and Better Oversee Risky Projects Totaling Billions of Dollars.  GAO-06-1099T. Washington, D.C.: September 7, 2006.
Information Technology: Agencies and OMB Should Strengthen  Processes for Identifying and Overseeing High Risk Projects. GAO-06- 647. Washington, D.C.: June 15, 2006.

	Information Technology Dashboard

IT Dashboard: Accuracy Has Improved, and Additional Efforts Are Under  Way To Better Inform Decision Making. GAO-12-210. Washington, D.C.:  November 7, 2011.
Information Technology: Continued Attention Needed to Accurately  Report Federal Spending and Improve Management. GAO-11-831T.  Washington, D.C.: July 14, 2011.
Information Technology: Continued Improvements in Investment  Oversight and Management Can Yield Billions in Savings. GAO-11-511T.  Washington, D.C.: April 12, 2011.
Information Technology: OMB Has Made Improvements to Its Dashboard,  but Further Work Is Needed by Agencies and OMB to Ensure Data  Accuracy. GAO-11-262. Washington, D.C.: March 15, 2011.
Information Technology: OMB’s Dashboard Has Increased Transparency  and Oversight, but Improvements Needed. GAO-10-701. Washington,  D.C.: July 16, 2010.
Information Technology: Federal Agencies Need to Strengthen  Investment Board Oversight of Poorly Planned and Performing Projects.  GAO-09-566. Washington, D.C.: June 30, 2009.

	Information Technology Acquisition Professionals

Federal Housing Administration: Improvements Needed in Risk  Assessment and Human Capital Management. GAO-12-15. Washington,  D.C.: November 7, 2011.
Information Technology: HUD’s Expenditure Plan Satisfies Statutory  Conditions and Implementation of Management Controls Is Under Way.  GAO-11-762. Washington, D.C.: September 7, 2011.
Information Technology: FBI Has Largely Staffed Key Modernization  Program, but Strategic Approach to Managing Program’s Human Capital  Is Needed. GAO-07-19. Washington, D.C.: October 16, 2006.

Summary:
Why GAO Did This Study

While investments in IT have the potential to improve lives and organizations, federal IT projects too often experience cost overruns, schedule slippages, and performance shortfalls. To address acquisition challenges, improve operational efficiencies, and deliver more value to the American taxpayer, in December 2010, OMBs Federal CIO issued a 25-point IT Reform Plan.
GAO was asked to (1) evaluate the progress OMB and key federal agencies have made on selected action items in the IT Reform Plan, (2) assess the plans for addressing action items that are behind schedule, and (3) assess the extent to which sound measures are in place to evaluate the success of the IT reform initiatives. To do so, GAO selected 10 of the 25 action items from the IT Reform Plan, focusing on the more important activities due to be completed by December 2011; analyzed agency documentation; and interviewed agency officials.

What GAO Found

The Office of Management and Budget (OMB) and key federal agencies have made progress on action items in the Information Technology (IT) Reform Plan, but there are several areas where more remains to be done. Of the 10 key action items GAO reviewed, 3 were completed and 7 were partially completed by December 2011, in part because the initiatives are complex. OMB reported greater progress than GAO determined, stating that 7 of the 10 action items were completed and that 3 were partially completed. While OMB officials acknowledge that there is more to do in each of the topic areas, they consider the key action items to be completed because the IT Reform Plan has served its purpose as a catalyst for a set of broader initiatives. They explained that work will continue on all of the initiatives even after OMB declares that the related action items are completed under the IT Reform Plan. We disagree with this approach. In prematurely declaring the action items to be completed, OMB risks losing momentum on the progress it has made to date. Until OMB and the agencies complete the action items, the benefits of the reform initiativesincluding increased operational efficiencies and more effective management of large-scale IT programswill likely be delayed.
OMB and key agencies plan to continue efforts to address the seven items that GAO identified as behind schedule, but lack time frames for completing most of them. For example, OMB plans to work with congressional committees during the fiscal year 2013 budget process to assist in exploring legislative proposals to establish flexible budget models and to consolidate certain routine IT purchases under agency chief information officers (CIO). However, OMB has not established time frames for completing five of the seven IT Reform Plan action items that are behind schedule. Until OMB and the agencies establish time frames for completing these corrective actions, they increase the risk that key action items will not be completed or effectively managed to closure. Further, they diminish the likelihood of achieving the full benefits of IT reform.
OMB has not established performance measures for evaluating the results of most of the IT reform initiatives GAO reviewed. Specifically, OMB has established performance measures for 4 of the 10 action items, including data center consolidation and cloud computing. However, no performance measures exist for 6 other action items, including establishing the best practices collaboration platform and developing a cadre of IT acquisition professionals. Until outcome-oriented performance measures are in place for each of the action items, OMB will be limited in its ability to evaluate progress that has been made and to determine whether or not the initiative is achieving its intended results.

What GAO Recommends

GAO is making recommendations to three agencies to complete key IT Reform action items; the agencies generally concurred. GAO is also making recommendations to OMB to complete key action items, accurately characterize the items status, and establish measures for IT reform initiatives. OMB agreed to complete key action items, but disagreed with the latter recommendations, noting that the agency believes it is characterizing the items status correctly and that measures are not warranted. GAO maintains that its recommendations are valid.