Revised

June 1992 Message Conferenc

Guide to Improving

Product Quality an

Timeliness

OP-6.3.1

Producing the highest quality product in ti

the users’ needs is GAO’s goal on each ass

The commitment to quality and timely rep

governs all of GAO’s work.

One initiative to improve the quality and th

timeliness of its products involves holding 

conference to reach agreement on the pro

message, content, and presentation. To be 

optimum use and help the message develo

these conferences have to be appropriatel

and it is imperative that the right GAO staf

Agreement should be reached on the mess

sufficiently documented so that division-le

managers can buy in. If these steps are don

effectively, the final processing of a produ

speeded up and a minimum of surprises sh

encountered.

This publication provides guidance on plan

conducting, and documenting these impor

meetings. Whether the meetings are sched

few hours, a few days, or a week, several c

presented here should make the process ru

smoothly and the overall conference be m

successful. This publication draws on and 

the information in the May 1986 Guide to C

Report Conferences.

We would like to acknowledge the valuabl

contributions made by division and region

provided helpful hints for conducting mes

Page 1 
conferences. We encourage others to prov

suggestions for enhancing these conferenc

should be sent to the Office of Policy for

consideration in a future edition.

Werner Grosshans

Assistant Comptroller General

 for Policy

Donald J. Horan

Assistant Comptroller General

 for Planning and Reporting

Page 2 
Page 3 
Preface 

Chapter 1 

Introduction

How Does GAO Develop the Message? 

Why Should Message Conferences Be Held

Who Should Attend a Message Conference

How Structured Should the Conference Be

Chapter 2 

Planning the

Message

Conference

Introduction 

What Should Be Considered in Planning a

Message Conference?

What Should Be Distributed Before the

Conference?

Chapter 3 

Conducting the

Message

Conference

Introduction 

How Should the Conference Be Conducted

What Needs to Be Considered at the

Conference?

How Should Conference Products Be

Developed?

What Else Needs to Be Done to Reach

Message Agreement?

Other Resource Materials 

Chapter 4 

Documenting the

Message

Conference

Introduction 

How Should Message Conferences Be

Documented?

Who Should Receive Conference

Documentation?

Chapter 5 

Alternatives to

Group Meetings

Introduction 

Alternatives to Face-To-Face Meetings 

Page 4 
Appendixes Appendix I: Preconference Checksheet 

Appendix II: Excerpt From Conference

Planning Guide

Appendix III: Message Design Form 

Appendix IV: Developing the Message and

the Product

Appendix V: Questions Helpful to Assessin

Assignments Results and Developing th

Message

Appendix VI: Message Agreement

Checksheet (GAO Form 288)

Abbreviations

DMTAG Design and Methodology Techn

Assistance Group

GAO General Accounting Office

GSA General Services Administratio

TAG Technical Assistance Group

Page 5 
How Does GAO

Develop the

Message?

Throughout an assignment, GAO encourag

consideration of the potential message. Du

design, managers and staff agree on the as

objectives, scope, and methodology. They 

what evidence to gather to support these a

focus on the potential message. During da

collection/analysis, team members ensure 

objectives are being met, assess the eviden

gathered, and consider the continued appr

of the potential message as well as alterna

messages. At each succeeding step, staff s

become more certain about what they will 

communicate.

From the early stages of an assignment, th

message should be identified and should b

reconsidered as the assignment progresse

factual data is developed. The message co

provides the opportunity for key assignme

share final views on the evidence and final

message and to reach agreement.

To be successful, a message conference sh

• be properly planned,

• be attended by the right GAO staff,

• enable participants to reach reasonable ag

the product and the message GAO will con

• achieve a meeting of the minds among key

assignment staff and a buy-in from manage

responsible for the product.

Why Should

Message

Conferences Be

Held?

GAO uses the message conference to impr

product quality and timeliness. It improves

coordination and communication during p

development and processing by

Page 6 
• informing those who will review and appro

product of the subject and related issues;

• ensuring that the requester’s questions hav

adequately answered;

• surfacing and resolving differences or wea

the product message;

• determining the adequacy and the sufficien

support for findings, conclusions, and/or

recommendations;

• identifying whether additional data collect

analysis is needed to fully support GAO’s p

• clarifying for the team the decisions made

• enabling staff to participate in discussions 

their work will be used in preparing the pr

• allowing line managers to assess the level 

of the writing task and to assign additiona

help draft the product, if appropriate; and

• ensuring that people in participating units 

working with the same message and prese

mind.

When a message conference is not held, a 

manager is likely to wait until he or she rev

draft product to make decisions about its c

Such a practice may waste drafting time an

During a message conference, decisions on 

product’s content can be made before the 

team invests time and effort in producing a 

While agreement on what GAO wants to

communicate—the message—can be reac

various ways, bringing appropriate divisio

and regional managers together with the a

staff and technical advisers in a carefully s

message conference is an effective approa

Page 7 
Who Should

Attend a Message

Conference?

A message conference is a key meeting of 

knowledgeable about the assignment, the 

other technical skills who, together, contri

producing a quality GAO product. These k

include the issue area director; the assista

regional management; the evaluator-in-cha

staff; and other specialists—Design and M

Technical Assistance Group/Technical Ass

Group (DMTAG/TAG) representatives,

writer-editors/reports analysts, attorneys,

investigators, or other technical advisers.

How Structured

Should the

Conference Be?

While many similarities exist in the differe

assignments GAO undertakes, each assign

unique characteristics. The interrelationsh

characteristics should be considered when 

how formal a message conference should 

No checksheet could ever be developed to 

address all the assignment considerations 

affect the decision to hold a formal confer

and managers, however, should assess cur

assignments in light of the potential benefi

achieved. The following items, while not e

should be considered.

• Size and complexity: Has the assignment i

large number of resources and/or participa

Were new or unique methodologies emplo

assess the issues? Is the product’s messag

be complex and multifaceted?

• Sensitivity of the issues: Will the message 

possible disagreements with GAO’s finding

conclusions, or recommendations? Are the

sensitivities that require special attention b

product is issued? Will the message be con

views of the requester or other congressio

Page 8 
Was possible fraudulent or criminal activit

uncovered during the assignment?

• Newness of the issue or extent of familiari

on the part of assignment staff: Are the iss

addressed for the first time, or is this a foll

assignment? Is this the first time a particul

office has participated in assignments for t

area? How experienced with the issue are 

• Extent of supervision and quality of comm

Was the issue area director actively involv

assignment since it began? Did the

evaluator-in-charge and/or the assistant di

frequently visit participating units and revi

evidence being collected? What was the qu

communications between participating un

• Current environment: Is the issue evolving 

subject to last-minute influences? Is the is

to legislative revisions or controversial con

debate before the product will be issued o

assignment complete? Will other congress

actions—budget reductions, new legislatio

other programs affect the message?

• Consistency of the evidence: Have all part

units been developing similar evidence, an

findings generally consistent among the un

Once these factors are considered, staff ca

whether holding a formal message confere

whether an alternate forum would better f

reaching message agreement. The followin

provide guidance for determining the degr

formality needed for a message conferenc

address

• planning the conference (see ch. 2),

• conducting the conference (see ch. 3),

• documenting the results of the conference 

• alternatives for formal meetings (see ch. 5

Page 9 
• checklists to accomplish these tasks (see a

VI).

Page 10 
Introduction Planning for the message conference is cri

success. A message conference brings tog

diverse individuals and personalities and g

represents a short time frame to accompli

objective. Since GAO assignments differ, e

conference needs to be tailored to meet th

of the assignment, the parties involved, an

ultimate user.

This chapter focuses on the preconference 

that will better achieve the purpose of the 

This preparation can be done by the

evaluator-in-charge alone or in conjunction 

team members. Preparation includes

• making meeting arrangements,

• analyzing the work results, and

• developing and distributing preconference 

A preconference planning checksheet is in

appendix I and the General Government D

Conference Planning Guide

(GAO/GGD-91-126) provides additional su

for planning a message conference. An exc

dealing with conference facilities, supplies

services is included as appendix II.

What Should Be

Considered in

Planning a

Message

Conference?

GAO’s assignment management system req

staff establish target dates for meeting crit

decision points, including message agreem

Achieving the message agreement date gen

flows from a message conference. But, in s

especially when there is a need for additio

collection/analysis, the dates of the messa

conference and message agreement could 

separated by weeks or by months.

Page 11 
Therefore, after a decision is made to hold 

conference, the “who,” “when,” and “wher

arise and must be addressed. While these f

highly interdependent, the planner (genera

evaluator-in-charge) needs to consider the

• timing of the conference,

• expected participants,

• length and location of the conference, and

• anticipated product(s).

Because assistant directors generally have 

experience attending message conference

broader knowledge of the issue area, they 

a key role in helping the evaluator-in-charg

plan and prepare for the conference. Such 

should include discussion of the proposed 

before the conference and guidance on wh

materials would be most useful to particip

and at the conference and what approach 

conducting the conference might be most 

This also should include deciding on the k

roles—facilitator and recorder—various p

may take.

Appropriate Timing Generally, the appropriate time to hold the

conference is near the end of fieldwork an

staff have been released from the assignm

important that sufficient time be allowed a

available after the conference to followup 

raised at the meeting. In any event, a confe

should not be scheduled until the team has 

sufficient data to formulate, with some con

the assignment’s findings, supporting evid

conclusions, and recommendations and is 

have them approved by the assistant direc

issue area director (and other top manager

appropriate).

Page 12 
The tendency to hold this meeting prematu

base the discussion on expected rather tha

findings misses the point of the conferenc

represents a potential threat to its utility. C

holding the conference too late in the assig

have negative consequences because staff 

already been released or the draft may hav

written without the input from participant

Experience indicates that before extensive

writing has taken place, staff are more ope

ideas and the conference is more valuable 

they are not committed to one way of pres

message.

Right People Present Staff who are most familiar with the work, 

are responsible for preparing the product, 

managers who will approve the contents s

attend. Essential participants include

• the evaluator-in-charge or the project man

• the key assignment team and technical ass

staff,

• the assistant director, and

• the issue area director.

To the extent possible, the issue area direc

attend all or part of the conference becaus

valuable insight to the overall message tha

can contribute because of his or her broad

perspective of the issue presented. Additio

issue area director can effectively assess t

implications of previous, current, or antici

assignments for the current product, and h

generally has had significant dealings with 

Discussions about these dealings may be a 

contribution to conference deliberations.

Page 13 
The degree to which the issue area directo

participate will significantly affects how th

conference will be structured and the anti

product. For example, if the issue area dir

attends the entire conference, agreements 

reached and the anticipated product can b

approved. On the other hand, if the issue a

can attend only a wrap-up session or cann

all, participants need to concentrate on ho

summarize the key points on which the iss

director’s concurrence is important.

It is critical that the issue area director agr

decisions made at the conference concern

product’s message and presentation in ord

reduce the drafting and review time. If the 

director cannot attend, he or she should b

of the agreements reached on the planned 

before substantial time has been spent dra

product. One option is to use electronic

communications to transmit the agreemen

This may enable the issue area director to 

concur on the agreements before the conf

reaches closure.

Attendance of staff responsible for prepar

product will help ensure that agreements r

reflected in the product and can speed the 

process. Frequently, having division or reg

writer-editors/reports analysts and/or the d

report reviewer in attendance facilitates ag

on the presentation issues and reduces the

questions during the review process.

In many cases, it is important that other pe

have had key roles in the assignment or wh

expected to have a key roles in reviewing t

also participate in part or all of the confere

include

Page 14 
• the regional manager, the assistant regiona

or the regional management representativ

lead region;

• subject area experts (inside or outside GA

• representatives from divisions and offices 

the product must be coordinated.

The circumstances under which the divisio

head or the director for planning and repo

a conference should be determined on a ca

basis; for example, major GAO assignment

of large-scale, multiregional reviews on co

issues could suggest that division managem

participation is warranted.

Length and Location Several factors contribute to the decision r

the length and the geographical location o

conference. For example, on a multiregion

assignment, consideration of travel costs a

may play a vital role in deciding where to h

conference. If significantly more persons f

headquarters may be attending, holding th

in Washington may be more desirable so th

people can attend. Conversely, if more reg

than headquarters staff will be participatin

the conference in the key regional office m

appropriate. Other considerations involve 

for access to the workpapers, the place(s) 

papers are located, and availability of need

equipment.

Once the geographical location has been d

the planner should consider where to mee

the fewest interruptions would occur. For 

meetings at headquarters audit sites provid

opportunity for several interruptions to tak

telephone calls or the necessity to attend o

meetings. When participants are not fully

Page 15 
concentrating on the goals and the objecti

conference, the levels of agreement may b

On the other hand, if a location is too inco

some participants—possibly critical techn

participants and representatives from othe

units—may choose not to attend. Therefor

planner needs to consider all the ramificat

attendance when determining location.

Determining conference length also is crit

Depending on the size, the complexity, or 

sensitivity of the assignment and the staff’

experience levels and anticipated output, t

can determine whether the objectives can 

in a matter of hours, days, or an entire wee

In some cases, especially when product se

be drafted, it may be advantageous to have 

participants attend for several days to agre

message and preliminary presentation and 

a few critical participants remain for the la

days.

Anticipated

Products

The planner also needs to consider the ant

conference product(s). That is, depending 

preliminary message agreement has essen

determined, whether fieldwork is substant

and who will participate, the planner can d

whether the conference output will includ

more of the following:

• A briefing of the issue area director and ve

preliminary outlines of the product’s form

content.

• An agreed-upon product outline, with char

paragraphs and topic sentences.

Page 16 
• A draft executive summary or “Results in B

module.

• Drafts of segments or chapters.

Once the anticipated product is determine

conference length can better be determine

What Should Be

Distributed

Before the

Conference?

A few steps taken before the conference c

ensure that the participants are prepared. 

circumstances, preliminary discussions am

staff (including regional staff, the assistant 

and the evaluator-in-charge) confirm the p

objectives; establish what can and should 

discussed at the conference; and test the e

make sure it will support the findings, the

conclusions, and the recommendations. Sa

discussions might include the following:

• Have findings discussed at earlier meeting

• Do the findings respond to the objectives?

• Have the objectives, the scope, or the timi

previously agreed on with the requester ch

so, have they been discussed with the requ

documented in contact memorandums or

confirmation letters?

• Have recent legislative or political changes 

the job results or will they affect them?

• Does the evidence for each finding’s eleme

the standards of sufficiency, competence, 

relevance?

• Is there a theme that ties the findings toge

• Is there a need to perform additional work 

support and/or link the findings?

Conference preparation generally should r

• a statement of the assignment and reportin

objectives,

Page 17 
• a summary of the scope and the methodol

• a summary of the answers to or conclusion

objectives, and

• a list of findings with key supporting evide

In some cases, the planner may request th

participating unit prepare a preliminary m

design form (see app. III) for each key find

resulting from that unit’s work. While not 

of the form may be completed before to th

conference, leaving some elements blank p

opportunity to assess the finding in light o

evidence obtained. These forms can be dis

before the meeting or brought to the meet

discussion. In other instances, developing 

executive summaries or the “Results in Br

may be appropriate.

Certain items definitely should be provide

conference to better ensure that all the pa

have a general working knowledge of the a

and the focus of the conference. These inc

• meeting particulars—date, time, location, 

• summary assignment objectives;

• summary of the scope and the methodolog

• copies of the congressional request, pertin

correspondence, and congressional contac

memorandums;

• a conference agenda; and

• preliminary expectations for the conferenc

These items, in addition to any message de

or preliminary executive summaries, serve 

for initial conference discussions and deci

Page 18 
Introduction While differing views exist on how to cond

message conference, the following elemen

contribute to a successful conference:

• Communicating expectations.

• Setting a positive tone.

• Assigning key roles;

• Allowing full discussion of the product’s m

presentational issues, and supporting evid

• Preparing conference output.

• Determining what else needs to be done to 

message agreement.

Documenting the results of the conference 

element in the overall achievement of the 

and is discussed in greater detail in chapte

How Should the

Conference Be

Conducted?

Early decisions should be reached by the

evaluator-in-charge, the assistant director, 

issue area director as to the expectations f

conference, the manner in which the confe

should be conducted, and the roles each o

leaders should play.

Communicating

Expectations

The assistant director or the issue area dir

should quickly establish the expectations f

meeting and fully explain that the conferen

intended to

• encourage thorough discussion of the assi

objectives, the findings, the supporting evi

potential conclusions and recommendatio

areas requiring additional followup;

• reach agreement on the product message, 

the presentation sequence, and the addres

• develop conference products, including an 

outline, an executive summary, or some ot

Page 19 
briefing-type product(s) to facilitate the w

process.

Setting a Positive

Tone

The issue area director, the assistant direc

evaluator-in-charge should emphasize that 

message conference is a working session d

which participants are expected to discuss 

of the work and decide on the best way to

communicate it in a GAO product. For the 

to work best, participants must understan

everyone is a team member trying to asses

assignment results and work out the best w

presenting them.

Since the purpose of the conference is to s

resolve as many issues as possible, it shou

viewed as merely a review of prepared ma

important that all those attending systema

discuss issues and facts in a congenial fash

discussion should be a team exercise in a

nonthreatening environment with everyon

participating.

The key to creating this positive atmosphe

each participant to come to the conferenc

open mind and a willingness to reach cons

the product’s message. This is not to say th

participants should not enter the conferen

clear idea of what they hope to accomplish

what gives the conference much of its focu

direction. Instruments such as message de

and outlines give staff an idea of what the 

will look like on paper. The key, however, 

these ideas as starting points that will be r

more effectively and adequately present th

Page 20 
Selecting a

Facilitator and a

Recorder

In some instances, either the assistant dire

issue area director acts as the facilitator an

evaluator-in-charge can focus on presentin

evidence and soliciting input from the othe

members. In other instances, the evaluator

or the reports analyst may lead the discuss

other situations, a third party, more highly 

group dynamics, can be used as the confer

facilitator.

The facilitator ensures that the roles of all

participants are understood and, througho

conference, maintains the focus of the disc

elicits comments, and ensures that import

are thoroughly discussed and carried to th

conclusions. The facilitator greatly contrib

meeting by

• encouraging everyone to participate (espe

participants);

• protecting individuals and their ideas from 

• rephrasing incomplete ideas;

• cutting off long-winded speakers; and

• summarizing, checking for agreement, stri

closure, and moving on to the next issue fo

discussion.

Although an agenda should be developed a

facilitator should try to keep to it, significa

flexibility is needed to ensure that discuss

findings are not curtailed to meet a prearra

timetable. Conversely, discussions need no

protracted merely because the agenda allo

additional time.

Someone also should be selected as a reco

the recorder merely takes notes and review

with the group at the end of the conferenc

productive method is for the recorder to c

Page 21 
meeting on flip charts, which are visible to

participants and tend to minimize repetitio

Other ways in which the recorder can con

the meeting are

• facilitating brainstorming,

• facilitating accuracy, and

• enhancing a sense of accomplishment.

Before the meeting ends, the recorder sho

the notes with the group to be sure import

have not been omitted or misunderstood. I

helpful to have someone type the agreeme

or other items of importance before the co

ends.

What Needs to Be

Considered at the

Conference?

Sufficient time should be scheduled to per

discussion of all pertinent issues. To achie

conference’s objectives, participants need 

agreement on

• the overall message,

• the adequacy of supporting evidence,

• the product type and format,

• any other reporting issues, and

• assignment tasks still to be completed.

Overall Message The overall message is the bottom line of a 

product and should be stated concisely to 

significance of the work. Such a clear mes

the reader understand the importance of th

and the implications of GAO’s work.

The message takes the assignment objectiv

findings developed and establishes “what t

for users. It sets the tone of GAO’s work an

Page 22 
participants to agree on “what should be

recommended” on the basis of the findings

Participants should consider the message 

evolved throughout the assignment and de

we should say” and “how we should say it” 

findings and the evidence. Appendix IV su

the key points in developing the message a

product.

In-Depth Discussion

of Findings and

Support

A detailed discussion of the evidence is im

assessing the assignment’s issues, prioritiz

findings, and determining the product’s ma

message. Participants should analyze each 

finding in depth to ensure that the evidenc

standards of evidence and contributes to t

message.

Depending on the assignment’s objectives

of the findings may include identifying and

questioning the sources of criteria, conditi

and effect. This critical discussion can ide

that require additional work or, alternative

or evidence not pertinent to the product’s 

that can be eliminated. This also helps the 

prioritize the issues and organize the prese

facts.

Discussions are frequently enhanced durin

preparation of the conference outputs—dr

executive summaries or outlines—discuss

Additionally, appendix V provides some he

questions to use in assessing the assignme

and developing the message.

Product Type and

Format

Once the overall message has been determ

the findings have been discussed in depth,

Page 23 
participants can determine the best produ

communicate this message. They should c

who the user is and what product type wil

the user’s need in the required time frame.

Additionally, staff should consider whethe

message includes

• broad or complex issues requiring a greate

descriptive information;

• sensitive or controversial matters;

• a limited scope in terms of issue(s) addres

descriptive information required, or assign

expended; and/or

• a specified time requirement for product is

In making these decisions, participants ma

among GAO’s various product types—chap

reports, letter reports, briefing documents

or correspondence.

Other Reporting

Considerations

Before finalizing any decisions on the prod

participants should consider other reportin

that may affect the final preparation of the 

These include the following:

• Will written agency comments be requeste

long will the agency have to reply?

• Who is the intended audience and what kn

does it have about the subject matter?

• When and with whom will GAO discuss th

be reported to get the views of responsible 

• With whom will the ultimate product need 

coordinated and who will review it?

• Will an interim product be necessary to me

time frames?

• Who will be drafting the final product and 

it be referenced?

Page 24 
• Who will the addressee be and who will si

product?

• What is the anticipated length of the produ

• Will estimated distribution be limited or w

• When will these tasks be accomplished?

How Should

Conference

Products Be

Developed?

ideally, the conference will be sufficiently 

if it results in producing draft materials ref

participants’ agreements on message, cont

format. When the issue area director partic

the conference and agrees with the results

product preparation may begin.

Even when final agreement may not have b

reached, drafting executive summaries, th

in Brief” module, and/or product outlines g

facilitates the approval process and develo

the final product.

Developing an

Executive Summary

Developing the standard modules of an ex

summary is effective in reaching agreemen

message. This approach has been successf

the final product is a letter report.

When an executive summary is to be deve

during the meeting, participants begin by d

the purpose of the review and, specifically

principal questions to be answered or poin

made in the product. The assignment team 

part of advance preparation, write on a flip 

on transparent view graphs what it believe

key reporting objectives.

After reaching agreement on objectives, th

participants can discuss and agree on the p

main message (“Results in Brief”)—their b

response to the objectives—and the eviden

Page 25 
supporting this response (“Principal Findin

“GAO’s Analysis”). This discussion should 

all findings and conclusions the team wish

communicate. The findings can then be gr

according to major issues, and participant

decide which are the most significant.

Once these agreements have been reached

participants can begin to develop and criti

recommendations. Participants should clo

examine the link between the recommend

the stated causes of the problems. Often it 

especially helpful to actually write the

recommendations before adjourning the c

because this eliminates confusion later in 

preparation stage as the team is writing to

agreed-upon wording for the recommenda

Finally, participants should decide what b

information is needed to understand the re

objectives and message. The background s

include program-specific information to he

message in its proper context.

Developing an

Outline

Another useful technique for focusing the

conference’s discussions and for reaching 

on the message is to prepare and revise an 

The length and the detail of the outline wil

depending on the complexity of the messa

more detailed the outline is, including hea

subheadings, charge paragraphs and topic 

the less chance there is of misinterpreting 

product’s main message.

A detailed outline serves as a “skeleton” of 

product. The charge paragraphs embody th

product’s message and its scope, order, an

Page 26 
In developing expanded outlines, participa

also consider what tables, graphs, charts, o

could best present or supplement the infor

be presented. GAO uses a variety of readil

software to automatically produce charts, 

presentation materials in the standardized 

Therefore, preliminary graphics could be d

and considered in addition to any text prep

If participants develop the outline to this e

writer essentially just needs to fill in the su

details to complete the draft.

Using Tools for

Organizing Products

Staff experienced with conducting or parti

message conferences use various tools to 

organize the product format and content a

the review process. These tools, while not 

every GAO location, should be helpful in d

information that several participants can w

simultaneously. These tools are as follows

• Data projection panels, or PC viewers, are 

connected to a computer and mounted on 

overhead projector. They allow computer 

be projected onto a screen or a wall so tha

of participants can view the information

simultaneously.

• Xerox conference copiers are large, specia

boards that recorders can write on and, wi

of a button, produce a letter-sized hard-co

of the material noted. The board can be er

easily permit revision before copies are pr

• Waxers are devices that apply a waxy coat

letter-sized paper and permit that paper to 

attached to walls, as post-its are attached t

Thus, main topics and supporting evidence 

be rearranged until the flow of the outline 

acceptable to the participants.

Page 27 
• Post-its, on a smaller scale, can be used as 

preliminary means of organizing key thoug

phrases in developing the outline. These g

facilitate brainstorming sessions during wh

information needs to be recorded, grouped

frequently rearranged.

• “Storyboarding” products that estimate the 

paragraphs or sentences needed for each s

be a key aid in moving from the outline to 

This exercise helps to reduce the risk that 

become significantly longer than anticipat

• Outlining software may facilitate formattin

revising of proposed outlines and can easi

printed for all to review.

• Editing software may facilitate the concur

and revision of drafts when participants ar

collocated.

As technology evolves, more tools will be 

for use in message conferences and other 

meetings. Staff should consider all alterna

planning conferences and determine what

mechanisms may be most beneficial.

Using Tools for

Reviewing

Conference

Products

To assess the potential effectiveness of the

conference output, participants should per

preliminary review of the product and revi

appropriate. The Training Institute’s cours

“Report Writing and Message Developmen

“Managing Writing” offer suggestions for

implementing structured reading techniqu

emphasize that good, clear thinking gives r

clear writing, not vice versa.

These techniques suggest using advance

organizers—headings and topic sentences

guidelines for reading a text and reviewing 

rather than all at once. In this way, review

Page 28 
a clear picture of the problems that need t

addressed. In general, using structured rea

techniques to review outlines involves the 

• Examining the advance organizers (titles, 

and charge paragraphs): Do they convey th

• Reading the topic sentences in conjunction 

advance organizers. Do they allow the read

follow the message? Do the topic sentence

the ideas stated by the captions?

• Examining clusters of paragraphs or sectio

whether they provide a unified content: Do

paragraph in the cluster continue the deve

the main idea?

Review of conference products to determi

overall logic and presentation of the propo

product will greatly facilitate the approval 

the issue area director.

What Else Needs

to Be Done to

Reach Message

Agreement?

Before reaching closure on the message co

participants need to discuss whether mess

agreement, in the assignment managemen

reached or whether additional data

collection/analysis work needs to be perfo

some cases, the conference may surface g

require further work. When these gaps sur

participants should agree on what needs to 

support the agreed-upon message and wha

estimated time is for completion.

Depending on the extent of additional wor

undertaken and the length of time it will ta

second conference may be needed. In som

other arrangements, such as a followup te

to discuss the results of the additional wor

sufficient to reach closure on message agr

Page 29 
Final areas requiring decisions relate to as

roles for the actual drafting and referencin

product, as well as a reevaluation of wheth

estimated time frames will be adequate.

Other Resource

Materials

The following sources of information may 

to conducting a more successful message 

• Training Institute course, “Meeting Effecti

Time” (formerly “Running Effective Meetin

• Training Institute course, “Report Writing 

Message Development.”

• Training Institute course, “Executive Summ

Workshop.”

• Training Institute course, “Managing Writi

• Office of Information Management and

Communications (formerly Office of Publi

Communications) publication, Writing Gui

Page 30 
Introduction Reaching message agreement indicates tha

responsible for preparing and/or reviewing 

product, including the issue area director, 

the product’s message, content, and forma

Maintaining a record of these agreements 

ensuring that all participants have a simila

understanding of the decisions reached an

acknowledge what needs to be done befor

issuance.

Additionally, GAO requires that copies of t

conference summary be kept in the master 

folder, which provides a clear record of th

process and contains key documents relat

actions taken on an assignment.

This chapter focuses on

• documenting the results of the message co

and

• distributing copies of the documentation t

appropriate parties.

How Should

Message

Conferences Be

Documented?

As with the planning for and the actual con

a message conference, no required format 

documenting the results of the meeting. Fl

format is necessary to ensure that the type 

documentation prepared meets the needs 

internal user(s) and requirements of the as

Including Sufficient

Information

When the issue area director was unable to 

is important to include in the documentati

sufficient information for him or her to un

and approve decisions reached. At times, t

document may even substitute for a forma

the issue area director.

Page 31 
As a minimum, documentation should incl

• a list of attendees,

• a summary of the agreements reached on m

soundness and presentation,

• a list of estimated dates for product prepa

processing,

• the names of those assigned drafting and p

responsibilities,

• a discussion of other matters that were ag

that could affect product issuance, and

• a discussion of any unresolved issues and 

responsible for resolving them.

Obtaining Review

and Approval

To ensure that key parties to the developm

issuance of the product are aware of the c

results, the evaluator-in-charge, the assista

the regional manager (if appropriate), and 

area director should review and approve th

conference documentation.

The person preparing the document may p

Message Agreement Checksheet (GAO For

288) (see app. VI for a copy) or a detailed w

memorandum or may use a division/office

format that meets the intended purpose. W

method is used, copies of any conference

output—draft executive summary and/or

outline—should be included as attachmen

Who Should

Receive

Conference

Documentation?

Because the conference documentation pr

critical information relating to the agreem

reached and the steps still to be taken, it is 

that each participant receive a copy. Becau

decisions must be made concerning the pr

primary recipient, whether at the conferen

should be the issue area director.

Page 32 
Other nonattending parties who need to kn

the product should receive a copy, includi

• key technical individuals, such as DMTAG

writer-editors/reports analysts, economic 

investigators, and Office of the General Co

attorneys, and

• representatives of other GAO divisions and 

management who will be reviewing the fin

and have a responsibility for or interest in 

matter.

When the subject matter is especially sens

controversial or has far-reaching implicati

GAO or for the agency reviewed, the issue 

director may determine that a copy of the 

conference documentation should be prov

director of planning and reporting and, in 

the division/office head.

When deciding who should receive a copy 

documentation, it is important to consider 

involved in the assignment to date, as well 

who may become involved before the prod

issued. To ensure that everyone agrees wit

message, the content, and presentation, it 

to provide copies to many individuals and 

input at this point rather than to wait for th

review phase.

Page 33 
Introduction While a message conference is a valuable q

assurance tool for reaching key agreement

should be considered for each assignment

assignments may accomplish the same goa

less formal mechanisms.

While divisions or offices may specify part

of assignments that require formal confere

may require them for all assignments, this 

describes some alternatives to holding fac

meetings that staff may want to consider i

whether to hold a message conference. Th

alternatives may also be considered as a m

followup meetings resulting from agreeme

at a message conference rather than holdin

conference.

Alternatives to

Face-To-Face

Meetings

Depending on the circumstances of the as

staff may or may not have a formal messag

conference yet believe that it is important 

communicate with staff at participating lo

following information discusses some alte

achieving these objectives.

Conference Calls One of the oldest alternatives is a conferen

which permits parties at several locations 

communicate simultaneously. The equipm

placed in a conference room that permits m

one party at each location to hear the conv

This alternative requires scheduling becau

connection requirements and allowing for 

differences.

Fax Machines Hard copies of documents can be almost

instantaneously transmitted to one or mor

through telephone lines. This option allow

Page 34 
immediate review of a document, and part

discuss their options over the telephone.

Electronic

Communications

When parties from two locations require

simultaneous access to a draft or prelimin

documents to review and revise, using

telecommunications software (such as Cro

permits each party to view the document o

and see what changes are being made by t

party. Adjoining telephone lines enable pa

discuss the material being reviewed.

Editing software also enables parties from 

locations to view and revise a draft produc

electronically transmit it to one or more lo

This option enables the parties to view sug

made by others and to assess the revisions

GAO is experimenting with local area netw

provide shared access to centralized data, 

networks could enhance electronic comm

within GAO.

Video Conferencing Another GAO experiment involves the use 

conferencing in lieu of face-to-face meetin

conferencing employs various technologie

participants at separate locations to comm

with each other visually and orally and to t

graphics and computer data using periphe

equipment. This option, like conference ca

a larger number of staff to participate, sinc

equipment is set up in special rooms and t

expenses are not involved.

The Future As technology evolves, more alternatives t

face-to-face meetings will emerge. While s

Page 35 
interpersonal characteristics found in mee

be lacking, the new advances in technolog

help to further improve the timeliness of p

quality products—one of GAO’s highest go

Page 36 
Page 37 
Plan Conference

or Alternative

Should a Formal

Message Conference

Be Held?

Was the assignment conducted in one loca

many? Was there a large expenditure of st

Was the assignment broad or narrow? Was 

methodology used? How experienced are 

the subject matter?

Is the subject sensitive and/or controversia

Has sufficient work has been completed o

assignment to make product decisions?

Making Meeting

Arrangements

Who Should Attend? Issue area director or member of the issue 

(associate director or assistant director de

the overview of the issue area).

Regional manager and/or the assistant reg

manager for planning and reporting.

Assistant director in charge of the assignm

Evaluator-in-charge and/or the project dire

Key assignment staff.

DMTAG/TAG and/or economic analysis gr

representative(s).

Writer-editors/reports analysts.

Page 38 
Division report reviewer.

Office of the General Counsel attorney.

Investigators.

Other technical assistants.

Representatives from other divisions.

What Is the Best

Timing for the

Majority of Expected

Participants?

Where Should the

Meeting Take Place?

How Long Should It

Last? How Long

Should It Last?

Consider the

Following:

Ease of attendance and travel costs and sc

Availability of facilities and equipment.

Need for access to workpapers.

Implication of anticipated conference prod

outlines or begin product preparation.

What Will the

Anticipated

Product(s) Be?

Briefing material for the issue area directo

Draft executive summary, “Results in Brie

and/or expanded outline.

First drafts of several chapters.

Page 39 
Discuss

Preliminary Work

Results

What Are the Views

of Participating

Units and Key

Participants?

Have findings discussed at earlier meeting

Do the findings respond to the objectives?

Have the objectives changed from those st

request letter?

Have recent legislative or political changes 

the job results or will such future changes 

Have allegations or evidence of fraud or ot

improper or illegal activities arisen?

Does the evidence for each finding’s eleme

the standards of sufficiency, competence, 

relevance?

Is there a theme that ties the findings toge

Is there a need to perform additional work 

support and/or link the findings?

Should message design forms for each pot

finding be prepared?

Page 40 
Distribute

Materials

What Materials Will

Give the Participants

a Better

Understanding of the

Assignment and the

Goals for the

Conference?

Meeting particulars: date, time, location, a

Summary assignment objectives.

Summary of the scope and the methodolog

Copies of the congressional request, pertin

correspondence, and congressional contac

memorandums.

Conference agenda.

Preliminary expectations for the conferen

Page 41 
Guide

Conference

Facilities,

Supplies, and

Services1

Facilities A meeting room that is large enough for ev

be comfortable in and furnished to encour

free-flowing conversation is important. Ke

facility to the number of participants and o

desired and vice versa. Do not invite more 

than can comfortably fit in the room.

Determine Facility

Availability

Appropriate conference facilities may be o

from any of the following sources:

• GAO

• The Congress

• Executive agencies

• Commercial facilities

GAO Facilities The following options are available for obt

conference rooms within GAO:

• Division and office conference rooms are 

through normal procedures. This involves 

the room by signing a sign-up book for eac

sure to allow yourself an extra half hour b

after the meeting so that you will be able t

room and clean up afterwards.

• Conference rooms are also available elsew

GAO Building. GAO Order 0660.1 lists the 

conference rooms available in the building

seating capacity, and how they may be res

• Conferences that may involve the discussi

sensitive or classified information should b

discussed with the Office of Security and S

in advance. There are limited conference f

Page 42 
Gude

available that are cleared for the discussio

classified information.

• Rooms in the Training Institute and the Ma

Development Center are also available. Ar

for these facilities can be made through th

Institute. The Training Institute generally a

reservations no earlier than 1 month in adv

conference date. Rooms at the Training In

the Management Development Center, how

often fully booked, making their availabilit

conferences problematic.

• Other GAO conference rooms are availabl

sites and regional offices.

• GAO is also developing new opportunities 

of video teleconferencing, which opens mo

possibilities for bringing people together. V

teleconferencing centers are available in th

Headquarters Building and the Seattle Reg

Office, with additional centers under cons

other locations.

Congressional Facilities Generally, the use of Committee meeting r

be arranged through the Committee staffs

found that Committees will usually make t

available if they are not being used for Com

business. However, we should be careful, 

to use these rooms, to not portray an imag

is closely tied to the interests of the Comm

addition, it is advisable to schedule a back

case of a last-minute requirement for the r

Congressman or a Committee.

Executive Agency

Facilities

Conference rooms can also be arranged in 

government agencies. Again, there is the n

sensitive about the implications of using a 

room at an agency being audited by GAO.

The General Services Administration (GSA

a program called The Living Buildings Pro

Page 43 
Gude

which conference facilities and auditorium

available in various government facilities f

These are usually attractive, historical faci

the Lee-Custis Mansion in Arlington or the 

the Department of Agriculture or the Natio

Academy of Sciences. One of these faciliti

Departmental Auditorium on Constitution 

which has conference rooms immediately 

main auditorium. A permit is required for u

facilities under this program. For further in

contact The Living Buildings Program coo

GSA on 202/472-1948.

Commercial Facilities It is GAO policy that meetings and confere

should generally be held in GAO facilities 

facilities that can be obtained at no cost to 

Exceptions to this policy can be made by a

Comptroller General and must be reported 

Director, General Services and Controller 

Order 0660.2). If an exception is granted, t

course, conference facilities available at v

hotels that can be reserved. It is important 

need to submit procurement requests if yo

use hotels for conferences. If the governm

spending more than $2,500, facilities will b

on a competitive basis. In such cases, the O

Acquisition Management should be contac

it can assist with the procurement process

when commercial facilities are used, the s

who book space may not be the same staff 

worked on the details of the meeting. It is 

to meet with the hotel’s events coordinato

coordinate and work out all the details. Sa

sometimes forget to let the hotel event coo

know what commitments have been made

burden falls upon GAO personnel to make 

all of GAO’s requirements are understood 

accommodated.

Page 44 
Gude

App.ii Supplies and

Equipment

Check the conference room at least a half 

the meeting to be certain that facilities are 

prepared or will be by meeting time.

Determine Need for

Supplies and Equipment

Make sure that there are sufficient tables a

for your purposes and that these are, or w

arranged in a suitable fashion. Do not forg

racks if they will be needed. A Requisition 

Facilities Services (GAO Form 40) can be 

requesting help from the Office of Propert

Management to prepare the room for the c

In some cases, it is advisable to prepare na

and/or tent cards to be placed in front of th

participants who will be sitting at the table

things to consider are paper, pencils, wate

The Office of Information Management an

Communications offers some sources for m

name badges and tent cards for participan

as other services.

Pay attention to audiovisual equipment. Ch

all meeting participants to see what their n

regarding audiovisual equipment and see t

in the room and in operating condition pri

meeting. It is also a good idea to have rese

items, such as extension cords, light bulbs 

overhead or slide projectors, etc. Equipme

reserved from the Video Communications 

the briefing room is being used, be sure to 

room a day or 2 before the conference and 

the Visual Communications staff for traini

use of the briefing room’s electrical and au

equipment. In addition to equipment, the O

Information Management and Communica

also provide support through the preparat

or printed materials. Furthermore, it can a

assistance in procurement and leasing of c

Page 45 
Gude

or other electronic or telecommunications 

if needed.

Special attention is required when using au

equipment in situations where the confere

held at a hotel because most hotels charge 

of such equipment. If costs will be incurre

audiovisual equipment, a procurement req

be prepared justifying its need.

Prior to the meeting, identify the nearest t

that meeting participants may use and info

that at the start of the meeting. Also, assig

who will be able to receive telephone calls 

messages to the conference room. Put this 

information and the telephone number in t

invitation package.

Page 46 
App.iii Message

Design Form

Product:____________________________ J

Code:____________

Purpose of Product:

Issue:

Major Findings (Complete for applicable e

Criteria:

Condition:

Cause:

Effect:

Conclusion(s):

Recommendation(s):

Primary Audience(s):

Secondary Audience(s):

Recommendations to:

Page 47 
Product

Issue Focus Concern 

What must we

say?

Objectives Do results

address

objectives/

answer

questions?

What can we

say?

Support What points

can we

make from

our data?

What should

we say?

Significance

of findings

What

message

should we

develop

from our

individual

findings?

How can we

say it?

Type of

product and

presentation

What

presentation

type and

sequence

will facilitate

understanding

our

message?

Page 48 
Assignments Results and Developin

the Message

Reporting and

Assignment

Objectives

• Are there differences in the reporting and 

objectives?

• Do they make sense?

• Are they measurable and do they allow rea

• Are the objectives biased? Are unstated as

implicit in them?

• Are the objectives linked to the request or

any change been reconciled?

• What expectations do the objectives set? W

elements of a finding would a reader expe

Scope and

Methodology

• Is there a clear statement of what work wa

achieve the objectives?

• Are there limitations to the work that shou

recognized in reporting the findings?

• If the methodology is complex, should the 

reviewed by a technical specialist?

Findings Have all the elements necessary to meet jo

objectives been adequately developed?2

Criteria • What state of affairs is desired or required

are compared with condition to demonstra

deficiency or an achievement.)

• Are the criteria stated fairly, explicitly, and

completely?

• Is the source identified (laws, regulations,

procedures, etc.)?

• Do we need Office of the General Counsel

assistance in identifying laws, regulations, 

congressional intent?

2

Depending on the assignment’s scope and objectives 

evidence gathered, an audit finding may include one 

following elements: criteria, condition, cause, and eff

types of jobs—for example, program evaluations or e

forecasts—may have different elements.

Page 49 
ssgets Resuts ad eeopg

the Message

• Is the applicability of criteria self-evident o

explained?

• Are alternatives to these criteria dealt with 

explained?

• Do the criteria make sense? Are they cons

sound management principles?

Condition • What is the actual state of affairs?

• Is the condition clearly stated and shown t

through convincing evidence?

• Is the extent of the condition accurately st

• If gaps exist, are they so significant as to g

seriously incomplete picture? (This could 

conclusions and recommendations.)

Cause • What factors are responsible for the differ

between condition and criteria?

• Are these factors clearly stated?

• Is there a reasonable and persuasive argum

why these factors contributed to the differ

opposed to others?

• How convincing is the evidence supportin

causes?

• Does our presentation of these causes rec

role of judgment?

• Does our explanation of causes provide th

recommendations?

• Are these causes attributable to internal m

control weaknesses?

Effect • What is the significance of a difference bet

condition and criteria? What are the conse

the difference? What would be the impact 

intervention (a policy, a program, a proced

action)?

Page 50 
ssgets Resuts ad eeopg

the Message

• Is the effect stated clearly; concisely; and, 

possible, in concrete terms?

• Is the effect distinguished from the conditi

• Is there a clear, logical link between condi

criteria, and cause?

• Is the significance of the effect demonstra

credible evidence?

Evidence • What type of evidence has been gathered: 

observational, documentary, or analytical?

• How convincing is it? Will it withstand the 

opposing views?

• Is corroborating evidence needed?

• Have the sources of the evidence been ide

• Were the data used to develop the evidenc

current available?

• Is the evidence valid, complete, and releva

a logical relationship between the evidenc

audit issues)?

Conclusions • Do the conclusions clearly and logically flo

findings?

• Do they overstate or understate the findin

• Do they recognize the limits of the finding

scope of work?

• Are the conclusions placed in the context 

real-world constraints?

• Do the conclusions provide balance and p

Recommendations• Is what needs to be done clear?

• Are the recommendations directed to the a

person?

• Is there a clear, logical link to problems an

causes?

• Are the recommendations feasible, practic

workable?

Page 51 
ssgets Resuts ad eeopg

the Message

• Will the recommendations have any adver

• Have alternatives been considered and dea

Agency

Comments

• Have the findings been discussed with age

officials?

• What is the most likely reaction to the mes

sharp disagreements are expected, will GA

to overcome opposing views?

• How will the agency comments be handled 

product, both those that agree and those th

agree with GAO’s positions?

Page 52 
Form 288)

Page 53 
o88)

Page 54 
o88)

Page 55 
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