United States General Accounting Office

GAO Briefing Report to the Chairman,

Committee on International Relations

House of Representatives

September 1996 FOREIGN

ASSISTANCE

Status of USAID’s

Reforms

G O A

years

1921 - 1996

GAO/NSIAD-96-241BR

GAO United States

General Accounting Office

Washington, D.C. 20548

National Security and

International Affairs Division

B-274657 

September 24, 1996

The Honorable Benjamin A. Gilman

Chairman, Committee on International Relations

House of Representatives

Dear Mr. Chairman:

As you requested, during the first phase of this review, we focused on the

status of the U.S. Agency for International Development’s (USAID) reform

efforts. On September 11, 1996, we briefed your staff on the results of the

first phase of our review. This report discusses the information presented

in that briefing. As agreed with your office, in the second phase, we plan to

assess the impact that USAID reforms have had on the delivery of assistance

overseas.

Background We reported in March 1992 that USAID lacked a clearly articulated strategic

direction (AID Management: Strategic Management Can Help AID Face

Current and Future Challenges (GAO/NSIAD-92-100, Mar. 6, 1992)). In response

to our findings and those of the USAID Inspector General, the President’s

Commission on the Management of AID Programs, and a joint USAID/Office

of Management and Budget study team, USAID began to develop a

management improvement plan directed at program management,

implementation, and evaluation; human resource management; and

information and financial management.

In March 1993, the President announced the National Performance Review

(NPR), a governmentwide initiative to “reinvent government.” In May 1993,

the USAID Administrator designated the entire agency as a “reinvention

laboratory” under NPR. In October 1993, the Administrator announced

USAID’s reform plan.

Results in Brief USAID has begun to undertake an array of reforms affecting the entire

agency, including organization, management, and program operations.

USAID’s missions largely have reorganized their activities around the

agency’s strategic objectives and are reporting in a results-based format.

However, according to USAID officials, the fiscal year 1998 budget cycle will

be the first test of the degree to which results are taken into account in

making resource allocation decisions. Further, personnel reforms are not

as far along as other reforms and may reflect long-standing difficulties that

Page 1 GAO/NSIAD-96-241BR Foreign Assistance
B-274657 

USAID has had in this area. Parallel to, and in support of USAID’s broad

reform efforts, is development of an integrated new management system

(NMS) with worldwide access, which is intended to consolidate a myriad of

existing systems.

USAID officials recognize that they face the challenge of institutionalizing

the gains that the agency has made to ensure the long-term sustainability

of reforms. To accomplish this objective, USAID needs to be able to show

that it is managing resources with greater efficiency and transparency and

demonstrate that it is achieving measurable results.

The briefing sections provide (1) more information on the origin and

impetus for USAID’s reform efforts, (2) a listing of the reform elements, and

(3) a status report on the reform efforts.

Scope and

Methodology

To determine the status of USAID’s management reforms, we analyzed 10

key reform initiatives identified by USAID as the centerpiece of their reform

effort. We reviewed data on each reform area, including action plans,

agency directives and performance reports, business area analyses, and

various reports and correspondence. We interviewed key agency officials

in most bureaus and offices in USAID headquarters in Washington, D.C.

We also visited the USAID mission in the Dominican Republic to obtain a

“snapshot” of reengineering efforts in the field. This mission is considered

by USAID officials as one of the best and most successful reengineered

missions. We interviewed the director and most U.S. direct hire as well as

foreign service national staff participating in strategic objective teams and

serving on employee committees. We also interviewed officials of

nongovernmental and private voluntary organizations working with this

mission.

We performed our review between May and September 1996 in

accordance with generally accepted government auditing standards. USAID

officials reviewed the information in this report and generally agreed with

it.

We are providing copies of this briefing report to the Chairmen and

Ranking Minority Members of the House and Senate Committees on

Appropriations, the Senate Committee on Foreign Relations, the House

Committee on Government Reform and Oversight, and the Senate

Page 2 GAO/NSIAD-96-241BR Foreign Assistance
B-274657 

Committee on Governmental Affairs; and the Ranking Minority Member of

the House Committee on International Relations. We are also sending

copies to the Administrator, U.S. Agency for International Development

and the Director, Office of Management and Budget. Copies will be made

available to others upon request.

If you or your staff have any questions about this report, please contact me

at (202) 512-4128. The major contributors to this report were Lawrence L.

Suda, John D. DeForge, James M. Strus, and Gregory S. Nixon.

Sincerely yours,

Jess T. Ford

Associate Director

International Relations and Trade Issues

Page 3 GAO/NSIAD-96-241BR Foreign Assistance
Contents

Letter 1

Briefing Section I 

Background

6

Briefing Section II 

USAID Reform

Elements

8

Briefing Section III 

Status of Reforms

10

Status of Reforms: Strategies, Budget, Evaluation 10

Status of Reforms: Organization 12

Status of Reforms: Management/Financial Information 14

Status of Reforms: Personnel 16

Status of Reforms: Procurement 18

Status of Reforms: Reengineering 20

Status of Reforms: Sustainability of Reforms 22

Table Table III.1: Projected Direct Hire Staff Reductions Between

9/30/92 and 9/30/96

13

Abbreviations

AWACS AID Worldwide Accounting and Control System

NMS new management system

NPR National Performance Review

OMB Office of Management and Budget

USAID U.S. Agency for International Development

Page 4 GAO/NSIAD-96-241BR Foreign Assistance
Page 5 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section I 

Background

GAO Background

Mid-1992: In response to recommendations by our 

office and others, USAID began to develop a 

management improvement plan.

March 1993: The President announced a 

governmentwide initiative to "reinvent government" 

called the National Performance Review.

 May 1993: The Administrator designated USAID as 

a "reinvention laboratory."

Page 6 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section I 

Background

In response to recommendations by our office, the U.S. Agency for

International Development (USAID) Inspector General, the President’s

Commission on the Management of USAID Programs, and a joint

USAID/Office of Management and Budget (OMB) study team, USAID began to

develop a management improvement plan in mid-1992. The plan was to

include improvements in program management, implementation, and

evaluation; human resource management; and information and financial

management.

In March 1993, the President announced the National Performance Review

(NPR), a governmentwide initiative to “reinvent government.” NPR examined

every cabinet department and 10 independent agencies. The NPR report

included 38 recommendations to USAID.

In May 1993, the USAID Administrator designated the entire agency as a

“reinvention laboratory.” This committed USAID to fundamental reform,

with the goal of transforming the agency into a high-performance,

results-driven organization.

Page 7 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section II 

USAID Reform Elements

GAO

Budget

Evaluation

Procurement

Personnel

Reengineering

USAID Reform Elements

Revised Legislation

Strategies

Organization 

Management 

information

Financial 

management 

Page 8 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section II 

USAID Reform Elements

USAID has identified 10 key reform elements as the centerpiece of its

reform effort. We have used these elements in this presentation.

USAID submitted proposed legislation to Congress for fiscal year 1994 (the

Peace, Prosperity, and Democracy Act of 1994, H.R. 3765) to repeal the

Foreign Assistance Act of 1961 and provide a revised policy framework for

U.S. foreign assistance. The bill was referred to the Senate Foreign

Relations Committee and the House Committee on Foreign Affairs.

Although the bill was not passed, USAID has reorganized its program

operations along the lines of strategic objectives, incorporating some goals

of the proposed legislation.

The other reform elements are discussed in the following briefing section

entitled Status of Reforms.

Page 9 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms

Strategies, Budget, Evaluation

USAID is reorganizing its activities around strategic 

objectives.

Congress continues to require project reporting.

USAID is using strategic objectives and the Results 

Review and Resource Request (R-4) process to 

build budgets. 

USAID is using performance indicators to measure 

progress in meeting strategic objectives. 

Page 10 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

USAID issued its Strategies for Sustainable Development in March 1994,

which outlined the five priority areas in which USAID would concentrate.

These priority areas are (1) promoting economic growth, (2) stabilizing

population and protecting human health, (3) advancing democracy,

(4) encouraging sound environmental management, and (5) providing

humanitarian and transition assistance. USAID missions have identified

their strategic objectives and developed plans on how the objectives will

be achieved. However, USAID’s congressional oversight committees have

not accepted USAID’s strategic objectives program approach as a basis for

reporting to Congress; thus, the agency must continue to report along

project lines. USAID officials recognize that, to achieve broad confidence in

its reform efforts, USAID needs to demonstrate that it is accomplishing

measurable results and adjusting resources to reflect results.

In 1996, USAID began using a results framework (Results Review and

Resource Request or R-4), which includes missions’ strategic objectives,

intermediate results, and operational indicators, to measure missions’

progress. The R-4 process is intended to link resource allocations and

performance. USAID officials said that the R-4 process will be fully

incorporated in the fiscal year 1998 budget process.

The Administrator has testified that USAID is now focused on measurable

results and that activities not achieving results will be redesigned or

terminated. The Center for Development Information and Evaluation,

USAID’s evaluation unit, is assisting missions in setting up evaluation and

monitoring teams and is concentrating on “what people need” for better

performance. It also is tracking how its customers use its evaluations, has

set up a computer “home page,” and is issuing “how to tips” to get its

findings out as quickly as possible.

Page 11 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms

Organization 

USAID has reduced its number of headquarters 

units.

USAID has closed 25 missions since 1992.

USAID is negotiating with the State Department to 

further reduce USAID's overseas presence by the 

year 2000.

USAID has reduced its workforce from 11,096 in 

1992 to 8,638 in 1996. 

The Administrator announced his reorganization plan for USAID in

October 1993. As part of that reorganization, each major bureau and office

undertook a business area analysis to “right-size” internal organization,

functions, and staff. USAID has reduced its total number of headquarters

units (i.e., offices, divisions, and bureaus) by 90, from 354 to 264. Unit

reductions came through abolishment or consolidations, but in some cases

new units were created.

Page 12 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

Since 1992, USAID will have closed 25 missions by the end of fiscal year

1996. According to USAID officials, the closures include representative

offices, as well as missions. USAID closed (1) five missions because their

host countries were considered poor development partners (e.g., Zaire);

(2) 15 missions because the host countries were ready for graduation from

U.S. assistance (e.g., Costa Rica); (3) one mission (Belize) because the

cost of operations exceeded the cost of program assistance; and (4) four

missions because of civil wars or safety or other concerns (e.g., Liberia).

USAID counted the closure of the office in Uruguay as two graduation

closures because it also serviced operations in Argentina.

USAID is negotiating with the Department of State on additional closures.

USAID intends to further reduce its overseas presence over the next 5 years.

From a total of over 70 missions in 1993, USAID expects to operate about 30

full missions, 20 limited missions with fewer U.S. direct-hire staff, and

maintain the capacity to mount up to 10 transitional missions.

USAID cut its total workforce, including direct hire staff and personal

service contractors, by 22 percent from 11,096 in September 1992 to 8,638

as of August 31, 1996. Part of the staff reduction was achieved through a

recent reduction-in-force, which eliminated 103 civil service and 97 foreign

service positions worldwide. USAID’s stated goal is a total workforce of

8,000 by fiscal year 1998.

Table III.1 depicts the projected reduction in civil service and foreign

service direct hire staff through September 1996.

Table III.1: Projected Direct Hire Staff

Reductions Between 9/30/92 and

9/30/96

Type Staff on 9/30/92 Staff on 9/30/96 Staff reduction

Civil

Service 1,558 1,220 338

Foreign

Service 1,591 1,187 404

Total 3,149 2,407 742

Page 13 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms 

Management/Financial Information

NMS is designed to integrate accounting, budget, 

personnel, procurement, and operational functions. 

NMS was activated at headquarters in July 1996; 

mission activation expected in October 1996.

Data transfer, development concerns, and further 

testing are delaying full implementation.

NMS will not be able to produce an auditable 

financial statement for fiscal year 1996.

USAID intends to contract for a third-party 

assessment for system integrity and security.

NMS costs to date are about $73 million.

Since 1994, USAID has been developing an automated new management

system (NMS) for its business and service functions. NMS is being designed

to consolidate all of USAID’s accounting, budget, personnel, procurement,

and program operations into a single, integrated network with worldwide

access. These efforts have been characterized by officials at USAID and OMB

and industry representatives as technically complex but a valuable

management tool. For example, one accounting module, the AID

worldwide accounting and control system (AWACS), is intended to replace

Page 14 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

11 outdated accounting systems currently operating in 43 USAID accounting

centers worldwide.

NMS was activated at USAID headquarters in Washington in July 1996.

(Activated means that all hardware is in place with the system modules

running at varying capacities while development and testing continues).

USAID officials intend to activate an updated software package for mission

use in October 1996.

Full implementation of NMS will not occur until system development and

data transfer from the old systems to NMS are complete. According to USAID

officials, NMS, particularly the AWACS, will not be fully implemented for

about a year. For example, the current AWACS module cannot perform

intended functions such as accrual calculation and reporting or foreign

currency accounting. USAID plans to correct these deficiencies in future

upgrades.

Also, as a result of development delays, NMS will not be able to meet USAID’s

stated goal of producing an auditable financial statement for fiscal 

year 1996. According to USAID officials, the financial statement will be

developed using USAID’s current accounting systems.

OMB and industry technical experts have recommended a third-party

assessment of the NMS development effort based on established

professional standards for systems integrity and security. USAID officials

agreed that, unlike a previous NMS risk assessment conducted in 1995,

which excluded the AWACS module and some of the development

methodology and procedures, the future assessment will include all

modules, functions, and development activity. USAID officials have said

they will contract for such an assessment.

The costs for NMS hardware and software development to date are about

$73 million. These costs include about $23.5 million for the AWACS module

development and about $15 million for hardware infrastructure costs. The

remaining costs include budget, procurement, and operations module

development, as well as telecommunications and database management.

USAID Inspector General officials told us they are reviewing NMS costs and

plan to issue an interim report by September 30, 1996.

Page 15 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms

Personnel

Personnel reforms are not as far along as other 

reforms.

USAID implemented a new employee evaluation 

program in April 1995.

NMS personnel module is expected in 1998 at a 

cost of about $2 million.

The 1993 NPR report recommended that USAID overhaul its personnel

system. The report stated that workforce management has been raised as a

problem at USAID in most of the major studies of the agency, including our

June 1993 report (Foreign Assistance: AID Strategic Direction and

Continued Management Improvements Needed (GAO/NSIAD-93-106, June 11,

1993)). The USAID personnel system has been criticized as complex, costly,

and unsuited to accomplishing the agency’s mission. In response to that

report, in December 1994, USAID began developing a human resources

Page 16 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

business area analysis to identify reforms and outline strategies for

implementing improvements.

USAID issued the business area analysis in August 1995, and indicated

several areas for reform, including personnel administration, career

management, training, foreign service assignment, employee evaluations,

and foreign service national support. However, since that time, USAID has

implemented few of these reforms. Consequently, personnel reforms are

not as far along as other USAID reforms. For example, USAID has not yet

developed the career management plan for USAID direct hire employees

and has not implemented some training and workforce planning reforms,

such as reforms aimed at integrating career management and expanding

training methods/learning delivery.

USAID officials said their reform efforts were delayed in fiscal year 1996

because its Personnel Office devoted much of its resources to

implementing the reduction-in-force and two furloughs. USAID officials

indicated that they plan to accelerate the pace of personnel reform over

the next year. They are also working with the State Department to define

foreign service national personnel system requirements.

In January 1996, USAID instituted a new employee performance evaluation

system, combining the foreign service and civil service systems under the

same evaluation framework. The system is designed to promote

teamwork, improve management, and reduce administrative costs. The

new system separates evaluation from promotion and seeks employee

performance information from peers, support personnel, supervisors, and

customers affected by the employee’s work.

In personnel administration, USAID plans to use information technology to

accelerate personnel actions and provide worldwide access of personnel

records, assignment actions, and employee information. USAID plans to

purchase an “off the shelf” commercial personnel software package, tailor

it to the agency’s civil service and foreign service systems, and integrate it

with NMS. USAID expects to have this system in place by 1998 at a cost of

about $2 million, which is not included as part of the current $73 million in

NMS cost estimates.

Page 17 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms

Procurement

USAID has increased transparency and 

encouraged wider participation in the procurement 

process.

USAID has reduced contract award time by 42 

percent.

USAID has increased procurement staff.

In January 1994, as part of the agency’s reform efforts under NPR, the

Administrator outlined 18 procurement initiatives to reform the

procurement process. Improvements in procurement are important given

the scope of procurement done by USAID. Currently, USAID manages

approximately $13 billion of ongoing contracts, grants, and cooperative

agreements, with annual awards of over $3 billion.

Page 18 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

To eliminate the perception that USAID had become a “closed shop” and to

increase competition, USAID has taken a number of steps to encourage

wider participation and increase transparency in USAID procurement. In

particular, USAID uses (1) the Internet and other electronic media and

(2) Commerce Business Daily Announcements and Contract Information

Bulletins to notify potential vendors of contracting information, such as

procurement forecasts, bids, and solicitation documents. To encourage

broader participation by potential customers, including small and

disadvantaged businesses, USAID holds outreach conferences throughout

the United States and has issued a guide to doing business with USAID.

Further, USAID has held a series of vendor town meetings and follow-up

workshops to provide a forum to identify and focus on procurement issues

important to USAID and the development community.

USAID has reduced competitive procurement time for contracts and task

orders by about 42 percent. In fiscal year 1993, USAID took an average of

192 days to award a competitive contract or task order from the time of

request for proposal to contract issuance. By fiscal year 1995, USAID had

reduced this time to an average of 111 days. USAID officials attribute the

reduction in award time to such factors as (1) increased use of task orders,

(2) better procurement planning, (3) more timely completion of pre-award

audits, (4) increase in the number of procurement professionals, and

(5) better training of staff.

While USAID has reduced its staff overall, the agency realized it needed to

increase the size and professionalism of its procurement staff to

successfully reform the procurement area. USAID has increased the number

of its procurement professionals (contracting officers and contract

negotiators) by about one third since fiscal year 1990. In 1990, the number

of contracting professionals was 104, rising to 119 in 1992, to a current

level of 151; this total includes 17 staff in the Office of Policy and

Evaluation who were assigned to the Office of Procurement as part of

USAID’s consolidation. Further, USAID has instituted a system of continuing

professional development requirements and a procurement management

certification program.

Page 19 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO Status of Reforms

Reengineering

USAID has developed four principles to guide its 

reengineering efforts.

USAID missions have reengineered their operations 

to varying degrees.

Not all headquarters units have adapted their 

operations to support reengineered missions.

Page 20 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

USAID’s reengineering effort has been along four guiding principles:

(1) defining and involving USAID’s customers, (2) empowering employees,

(3) managing for results, and (4) emphasizing and rewarding teamwork.

To help implement these principles, USAID developed business area

analyses to reform its core business functions.

USAID reports that its overseas missions have reengineered their operations

to varying degrees and missions are structuring their development efforts

within USAID’s overall strategic objectives. Early in the reform process,

USAID selected 10 missions to serve as experimental laboratories to test

various reform efforts. As a result, some missions have reengineered their

operations to a greater degree than others. For example, the mission to the

Dominican Republic has reengineered its operations along four strategic

objectives, reorganized along strategic objective teams, and physically

reconfigured the office to promote teamwork. Employees have been given

greater authority and responsibilities, and organizational levels were

reduced. The mission has brought its customers—nongovernmental

organizations as well as other donor institutions—into its planning and

operational discussions.

Headquarters units have not reengineered their operations to the degree

that missions have and not all have adapted their operations to support

reengineered missions. USAID officials acknowledge that headquarters, in

general, has not reengineered operations at the same pace as many

missions. However, these officials added that headquarters units still are

committed to reform and reengineering but at a slower pace. Missions are

closer to their customers and have more at stake in the development

process. Working directly with recipients, missions can much more easily

see the results of their efforts. Further, bureaucratic and cultural barriers

to reengineering are easier to break down at a mission level than at

headquarters.

Page 21 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

GAO

USAID needs to demonstrate that measurable 

results are being achieved and resources are being 

adjusted to reflect results.

Employee confidence in NMS is critical to USAID 

reforms. 

Reform success could be affected by disparity in 

progress among reform elements.

Institutionalizing reforms will help sustain 

momentum. 

Status of Reforms

Sustainability of Reforms

Page 22 GAO/NSIAD-96-241BR Foreign Assistance
Briefing Section III 

Status of Reforms

The USAID Administrator committed the agency to fundamental reform in

1993 with the goal of transforming USAID into a results-driven agency. USAID

has since undertaken a substantial array of reforms affecting the entire

agency. Key aspects of success are being able to demonstrate that USAID is

achieving measurable results under its strategic objectives and considering

results in its resource allocation. These actions will also help build

congressional confidence in the strategic approach as well as that of other

stake-holders such as the State Department.

Most of USAID’s reforms will be facilitated and supported by the successful

implementation of NMS. For example, USAID procurement efficiency

depends on NMS as does the smooth operation of a results-based budgeting

process. While employees support what the system promises, they remain

skeptical about what it will deliver. This skepticism is in part due to a

record of delays in implementation. For example, although USAID intended

the system to be operational by October 1995, the AWACS module will not

be fully operational for at least another year and the entire system is still

undergoing testing.

Missions are structuring their activities around the agency’s strategic

objectives and are reporting in a results-based format. Ultimately, their

success and efficiency will depend to a considerable extent on the support

they receive from other components undergoing reform. For example,

personnel reforms are not as far along as other reforms and may reflect

long standing difficulties that USAID has had in this area. However, an

important part of personnel reform, a new employee evaluation system,

has been introduced. Its success will be a key to USAID being able to show

that it is holding employees accountable and rewarding them for results.

While reforms continue, USAID officials recognize that they face the

challenge of institutionalizing the gains made to ensure the long-term

sustainability of reform. Concurrent and consistent progress in all areas of

reforms will help USAID to achieve sustainability. Such progress, along with

transparency in resource allocation based on results and continued

training on reengineering concepts and practices, will help capture these

gains.

(711227) Page 23 GAO/NSIAD-96-241BR Foreign Assistance
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