BLM, FHWA, IRS, and VBA recognize that they are in the early stages of implementation in using a balanced set of expectations as part of their senior executive performance management systems.

Does it follow that "While BLM, FHWA, IRS, and VBA are in the early stages of implementing a balanced set of expectations for the senior executive performance management systems, they already have many other aspects of the program in motion."?
it is not possible to tell