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    \f    PROGRAM CONVENERS
         Thomas J.  Buckholtz
         Commissioner
         Information Resources  Management Service
         General  Services  Administration

         Francis A. McDonough
         Assistant  Commissioner  for
            Federal  Information Resources Management
         Information Resources  Management Service
X       General  Services  Administration

js~        Franklin S.  Reeder
K        Chief,  Information  Policy Branch
*>        Office  of Information  and Regulatory Affairs
fp        Office of Management and Budget

         (Mr.  Reeder has recently assumed a new position at OMB.  His new position
         is  Deputy Assistant Director for General Management)

         PROGRAM STAFF

         Virginia P. Banister
         Director,  Planning  and Development  Staff
         Office "of Federal Information Resources
           Management
         Information Resources  Management Service
         General  Services  Administration

         Vivian Ronen
         Program  Analyst,  Planning and  Development Staff
         Office of Federal Information Resources
           Management
         Information Resources  Management Service
         General  Services  Administration
     OJ
                                  HEADQUARTERS LIBRARY
                                  ENVIRONMENTAL PROTECTION AGENCY
                                  WASHINGTON, O.C. 20460

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Introduction

This report  summarizes  the  work  of  six governmentwide study  groups
convened  to  address Federal Information Resources Management (IBM)
issues  for the  mid-1990's.  This report  is the  product of the collective
effort of numerous Federal IRM officials, conducted under the auspices of
the Office  of Federal Information  Resources  Management,  Information
Resources Management Service (IRMS),  General Services Administration
(GSA),  and   the  Information  Policy Branch, Office  of  Information  and
Regulatory Affairs, Office  of Management and Budget (OMB).   The report
identifies important issues Federal  IRM  managers will  face  in the mid-
1990's.  It also identifies  actions to  address these issues.

Throughout the development of  the  report, the following  assumptions were
made:

1.   Proposed  actions and  recommendations would be explicit.

2.   Proposed  actions and  recommendations would  be reviewed by the Office
of  Management and Budget (OMB) and  the General Services Administration
(GSA).

3.  Those actions and recommendations endorsed by OMB and GSA would be
tracked by the Chairperson of  each study group to ensure their completion.

Background

One of the  responsibilities  of  Senior Agency  Officials  for  Information
Resources Management is  to look beyond today's problems and envision the
governmentwide IRM program of  the future.  With this in mind, the GSA  and
OMB jointly sponsored a workshop, in January 1990,  to address this issue
and to  focus  on the management of IRM in  the  mid-1990's.   Forty  senior
IRM  officials  from 22  Federal agencies participated  in  the  workshop
sessions.
                                  1.

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Four reports  were presented as a  catalyst  for discussion  at the January
1990 session.  The reports addressed major IRM issues to be considered as
agencies look ahead  to the mid-1990's.  Those reports are:

Beyond FTS2000: fl Program for Change
Dr. Bernard Bennington as a Visiting Fellow of the Board on Tele-
communications and  Computer Applications for the National Research
Council

Using Information Technology to Suppqrt fldministratiue
Modernisation fflnd To Bring Better Seruice to the Citizen)
Clifford H. Glover and Kieran O'Dwyer, Public Management Service,
Organisation for  Economic Co-Operation and  Development,
Paris, France

Bugs in the Program: Problems In Federal Gouernment
Computer Software Deuelopment and Regulation
Staff Study by the Subcommittee on Investigations and Oversight,
transmitted to the Committee on Science,  Space,  and Technology,
U.S. House of Representatives

Workshop on Crossroads of Information Technology Standards
A workshop convened by the National Research Council, Commission on
Engineering and  Technical Systems

As a result of the materials presented at the January session  and ensuing,
often  heated  discussion,  participants agreed  to  form six study groups to
address the issues enumerated below:

1.   Developing a Plan to Use Technology to Provide Better Service to  the
    Citizens

2.   Extending  the Trail Boss Program

3.   Rethinking the Strategic Planning Process

4.   Developing a  Governmentwide 5-Year Plan for Information Technology
   (IT) Standards        „

                                  2.

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5.  Developing Large, Highly Integrated Systems in  an Evolutionary Manner

6.  Developing a Plan to Modernize Administration

Each group was  charged to develop a statement of the issue or problem as
it  saw  it  and specific  recommendations for action.  Particular emphasis
was placed  on  measures  that  could be completed  within  existing
authorities and within the next one or two years.  Each of the  study groups
met several times in February and March  1990.   The  entire group  was
reconvened in April 1990 to  discuss the study group products in an  open
forum,   to  address  proposed  recommendations,  and  to develop  final
recommendations.

The remainder  of the  report provides a brief  description of the issues
addressed by each study group and their proposed  recommendations.

GSA and OMB executives feel that the study group  sessions  were  such a
success that this vehicle may be used  in  the future for emerging  IRM
issues.

flcknomledoements:

Recognition  and  appreciation is extended to  the  Chairpersons  and study
group members  who devoted considerable portions of their already limited
time to  this  effort. A list of these  individuals is included  as Appendix A.

Disclaimer:

This report does not purport  to be the complete and definitive IRM policy
agenda, or even  a complete  list of issues, for the 1990's.  On  the contrary,
there are numerous  other issues,  ranging from investing  in human capital
and making  it easier to acquire technology  and services, to improving the
security  and  integrity  of information not  addressed here. OMB and GSA are
continuing, through this and other forums, to pursue that  larger agenda.
                                  3.

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    Developing a Program  to  Use Technology  to  Provide
                 Better  Service  to  the  Citizens

Issue:   Federal  IRM  activities have traditionally  focused on improving
efficiency.   Other service providers in the private  sector, in State  and
local  governments,  and in  the European governmental community  have
significantly  raised  the level  and  quality  of  service  provided  to  their
customers/citizens.    Emphasis  on  improving  the quality   of  service
provided to the consumers  of  Federally provided services is needed to
meet  rising citizen  expectations.

Required  fiction:  Design a broad program to develop further understanding
of the role of technology  in  providing  better service to the citizens.
(Caveat:   Many  Federal governmental programs  are delivered through  or in
cooperation with States and localities.   Development of improved  client
service  delivery  systems must be based on a  partnership and continuing
close  cooperation among all who  are responsible.)

Recommendations:

1. GSA should coordinate a study to:

   a.  Define and characterize citizen requirements  and related service
needs.

    b.  Survey  leading efforts  in  the  Federal  community,  in  the private
sector, and in State, local and foreign  governments.

    c.  Identify  comparable  service   environments,  standards   of  per-
formance and opportunities for service improvement  and collaboration.

    d.  Identify  potential  "solutions" including those  based  on technology
and public skills.  (This includes technology and public  skills  which  may
not presently exist, but are  likely to exist in the future).

2.  GSA and OMB  should establish an oversight group, including agency
officials, to initiate and oversee the study.   Leading  public administration
schools  or outside expertise should  be considered to undertake  the  study.
                                  4.

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3.   GSA,  working with the  oversight group, should  identify  and  initiate
agency pilot/demonstration  projects to enhance  the quality and efficiency
of citizen  service delivery.   For example:   enhance access  to and  the
utility  of  personal  information,  commercial information,  and  interactive
processes  such as citizen participation in governmental processes.

4.   GSA should  consider  establishing an  ad  hoc interagency group to
identify  and  evaluate  lessons  learned in  agency pilot/demonstration
programs.

5. GSA and OMB should consider the  following themes:

    a.   Calling  agencies'  attention  to  better  recognizing opportunities
regarding  how  they  serve their clients.

    b.   Learning  from  on-going efforts  and  the  potential  offered   by
evolving technology  and public skills.

    c.  Figuring  out a better model  than exists today --  one that  allows
for synergy  among several Federal programs.

    d.  initiating  action via  a special prototype reflecting at  least a, b,
and c above.

6.  In addition the following  actions  are  recommended relative  to Service
to the Citizens:

    a.  Add it as an emphasis area in  agency IRM triennial reviews (GSA).

    b.  Include it in Strategic Planning  Guidance (OMB).

    c.  Increase  Government awareness  of the concept through  policy
issuance and promotional programs (OMB).

    d.  Include it as a factor in central agency reviews  (GSA).

    e.  Ensure that  citizens have an  active  participatory  role  in  the
development of information  architectures  (OMB).
                                   5.

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               Extending  the  Trail Boss  Program
Issue: The Trail Boss Program offered by GSA provides new Trail Bosses
with  much  of the information they need  to conduct major acquisitions for
the IRM resources needed to run the major systems the Government relies
upon.  The Trail Boss  Program  is designed to  develop managers to  take a
program  from  concept  development  to about  one  year after award.
Discussions  suggest  a need  for  a new program which,  would develop
implementation managers to  complement the  acquisition managers  being
developed currently  in the Trail  Boss Program.  The group  recognizes that
the issue of  training and retaining skilled IRM professionals is  larger than
the scope  of this  issue, but it  focused specifically on  the  problem  of
building project management  skills.   In addition, there are other types  of
training which the working group would  like GSA to address  in the out
years.

Required  fiction:  Design  an  educational program to extend  the current
Trail Boss Education Program.  Such a program should augment education
and training available through existing  academic programs.

Recommendations:

1.  GSA should consider establishing two companion  courses  to the  Trail
Boss acquisition course as follows:

    a.   A  one-month  "Comprehensive Information Systems Methodology"
course to cover both the technical and  management aspects  of the life
cycle  management of a system  for mid-level  managers.   The  President's
Council on Management Improvement (PCMI) and the President's Council on
Integrity and  Efficiency  (PCIE) should  be consulted to reinforce the work
already done  in this  area by the Councils.

    b.   A two-week "Systems Project  Management" course.   This  would
pick  up where the original Trail  Boss  Program leaves off about one year
after award.   Managers will  be  trained  to handle major  implementation
from that point in time for the  8-10  years that it takes  to  implement  a
system.   Managing a  software development  project  is  different than
managing  other  types  of projects.   This course  should be  designed  to
address the   major  areas  of   difference   so   managers   accustomed  to

                                  6.

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 managing  hardware  projects are  not  mislead.  In  selecting faculty, it  is
 important that a  balance  be maintained between theorists and experienced
 practitioners, with emphasis on  the  latter.

 2.   GSA should develop companion courses formulated as complete  and
 integrated  units.   GSA also should decide whether or not  to carve  out  of
 the  proposed companion courses  those subject areas  not unique  to the
 Federal  environment, and  have  those subjects covered  by the  private
 sector.

 3.   GSA-should  use a process similar to  that employed in the  Trail Boss
 Acquisition Course  to  determine  the pool  of potential  students  and
 maintenance levels needed.

 4.   GSA  should confirm  availability  of  resources  to bring  these  two
 courses  on line.  This includes developing courses during FY  1990  and
 offering pilot courses during FY 1991.

 5.   GSA should determine grade  level of course attendees.   Confirm  in
 course  requirements  survey that agencies support  the  attendance  at the
 same course of  multiple  grade levels  which  is  currently at GS/GM-14/15
 level.   GSA also should determine the  need to extend  the  Trail Boss
 Program to the GS/GM-13 level.  I/

 6.   GSA  should consider  implementing  a  certification program  at  the
 completion of Trail Boss courses.
iy    Discussion suggested the importance of some flexibility
      in fixing grade level  requirements to recognize the
      needs of smaller  agencies, with smaller projects, where
      grade levels  are  often lower.
                                  7.

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            Rethinking  the  Strategic  Planning   Process

 Issue;  The use of  information resources should improve  the effectiveness
 and efficiency of Federal  government operations.  However, some current
 planning processes do not support this goal because  such  processes either
 do not exist or focus on the bottom-up  aggregation of plans submitted  by
 organizational  components without  cross-organizational integration.   The
 working  group reviewed the utility  of existing Federal  planning  processes
 and the principal methodologies existing  in the private sector,   it  found
 that  existing  Federal processes  do  not  contribute materially to  the
 management  needs identified because  (1)  the  existing Federal  processes
 were  developed  to   support  primarily   regulatory  needs, and (2)  the
 information  resulting  from  these  regulatory  processes   was incomplete
 and understated  the value of Federal information resources in  meeting the
 mission  needs of  the  Government  as a  whole.   Because there is little
 incentive  and  limited  apparent  utility  to  implement   a multitude  of
 processes,  Federal  managers  operating  under increasingly  constrained
 resources  have tended to  satisfy the regulatory dictates as the  first order
 of  business.

• Required  fiction:   Remove  existing  impediments and formulate new
 approaches and  incentives for  strategic  IRM  (or similar)  planning  in  the
 Federal government.

 Recommendations:

 1.  OMB should change Circular A-11 to require each agency to  produce a
 strategic business  plan  and change Circular  A-130  to provide  operating
 guidelines  which reflect the following  principles:

     a.  Information is a strategic organization asset.

     b.  There  should  be  a  strategic  IRM  planning  process.  Appropriate
 attention   should  be  given to  translating  mission  needs   into  IRM
 requirements  and   utilizing   IRM  capabilities   to  create   mission
 opportunities.

     c.   Agency  information  resources  management  processes should be
 fully integrated into departmental  processes.
                                  8.

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    d.  There  is  no  substitute  for  top  management leadership  and
participation.

    e.  Information  resources requirements should  be  agency-client  and
"user driven."

    f.   The full extent of the information resources investment should be
visible to agency management.

    g.   Appropriate focus  must be  given  to  human  resources  and
applications  (mission  specific  data  and  software),  rather  than  over
focusing on supporting technology.

2.  OMB  should change Circular  A-11  to  require line items and  program
descriptions for all  information  resources in  line  and  staff  organization
budgets, including those for embedded systems and new starts  beyond the
current  budget  year.

3.  OMB  should change the Chair of the Federal IRM  Policy Council to
provide a  balanced focus for both management  and regulatory concerns,
and to consist  of representatives from GSA, OMB, and  an agency.  Major
functions of the Council  should  be to foster on-going major IRM policies
and to  address  management/regulatory issues.

4.  Agencies should devise their goals  and objectives to ensure  that they
truly focus on  strategic  planning.
                                  9.

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         Developing  a  Governmentwide  5-Year   Plan
         for  Information  Technology (IT)  Standards

Issue:  Federal agencies are under increasing pressure to use information
technology to  improve  efficiency and  delivery  of  services to  the  public.
Further,  Federal  agencies are concerned  about  reducing their software
development costs  and  maximizing  their investments  in   applications
software.  There is  a new reality that  is  becoming increasingly evident.
Key  aspects of  this  new reality are that Federal agencies:

1.  Now recognize that  they  no longer can create  de facto standards and
enforce them on the commercial market as they  were able to do  with
earlier standards such as COBOL;

2. Must  rely  on the  commercial  market  for  information technology
products and services; and

3.  Must  establish  strategies  and  plans  for   acquiring   information
technology products  and  services based  upon  open  systems  standards
which support  applications software portability and  interoperability.

Required fiction: Establish  an approach and an organizational structure to
develop  Federal  requirements  for  open  system  environments  and
mechanisms for addressing the requirements.

Recommendations:

1. The  National  Institute  of Standards and  Technology  (NIST) should
establish a Federal Open System Users Council.  The Council should provide
a forum for Federal" organizations  having  a requirement  for information
systems  that can provide  end-users with  a  single, unified view of data
across  heterogeneous  applications, hardware/software  platforms,  and
organizational units;  and a methodology that preserves  users' investments
in application software,  people  skills, and data.

      a.   The Council  should be driven  by Federal user-interests, should
operate  according to Federal  user-established  rules, and should  reflect a
Federal  user perspective.

                                 10.

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    b.  The Council  should  provide a forum  for identifying commonality of
interests  between  Federal  users and  other  users  and  user-sponsored
groups.

    c.  The Council  should interact with vendor-sponsored  groups, and
formal  standards  organizations  by  providing  a  forum  for  formulating
Federal  user  requirements and Federal  perspectives  on  information
technology issues.

    d.  The work  program  of the Council should  focus on the  following
areas  of  activity:

       (1)   Developing application profiles in business  areas  of  strategic
Federal interest.

       (2)  identifying  requirements  and developing  strategies  for achiev-
ing  open  systems  that  provide for  interoperability  of  products  and
portability of people,  data and  applications software.

       (3)   Exchanging experiences and formulating strategies for dealing
with common  issues.

       (4)   Providing a  source  of unbiased information  regarding  open
systems environments and  related technologies, and  with  test compliance
procedures.

       (5)   Establishing  liaison with  other users  and  user-sponsored
organizations whose  interests and activities  are synergistic with  those  of
the Council.

        (6)  Establishing liaison  with vendors  and vendor-sponsored groups
which  are  interested  in  obtaining Federal requirements and  perspectives
on  standards and related information technology issues.

2.   To implement the  recommendation NIST should:

    a.  Prepare  a charter  of the  Council.

    b.  Develop an implementation plan.

                                  11.

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               c.  Establish organizational  context for the Council  working with OMB.

               d.  Develop  a  work plan  that will  guide the initial work of the  Council,
           including  establishing  methods for  disseminating  information  regarding
           open  system environments  and  related  standards  to  the   Federal
           community,  and  for  codifying  experiences  regarding  open  system
           environments  and related standards.
                                            12.
*
o

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     Developing  Large,  Highly  Integrated  Systems  in an
                      Evolutionary  Manner

 Issue:  There  are  well-recognized  problems  in acquiring  and developing
 the large, complex systems used in  the Federal  government.  Some of the
 problems are  understood.   For example,  systems  are  sometimes made
 larger and more complex  than necessary.  In other cases the problems are
 not  so  well   understood.   The  group  concluded  that  evolutionary
 development  of systems  is  often  the  preferred  approach.    More
 understanding of this approach is needed.

 Required   fiction:  Assemble,  from all possible  sources,  material on
 development  of large, highly integrated evolutionary  systems and make
 that  information  available  to all agencies in  the Federal  government.   In
 addition,  develop mechanisms to train agency managers on the preferred
 approach to  be followed.

 Recommendations:

 1.  GSA should conduct a study to  determine how  large,  highly integrated
 systems  evolve.

 2.   GSA should continue to  stimulate informed discussion  on  how  to
 develop  large, highly  integrated systems.   This  can be  achieved  through
 speeches, forums,  and studies  to advance the  level of discussion to  the
 next plateau.

 3.   GSA should  compile  a  list  of  references  of  available  material
 (anthology) on development of large, highly integrated systems.

 4.   GSA  should  consolidate  terms such as  "iterative",  "modular",
 "downsizing",  and "non-grand design", and use the new term "evolutionary
development" which would  minimize further  confusion.
                                 13.

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           Developing  a  Plan  to  Modernize Administration

issue:   Agencies face conflicting  trends  of increasing  demands  and
declining resources.  While IRM  has dramatic potential  for improving the
efficiency and effectiveness of Government agencies, the Government  may
be  realizing just  a fraction  of  this potential.   Without substantial change
in how the Government is now acquiring,  introducing and using information
resources, it may never realize this full potential.

Required   flction:  Ten years  have  now passed since the Paperwork
Reduction Act was passed  formally establishing an IRM Program in the
Federal  government.    It  is  time  to  evaluate  progress  to  date in
streamlining  and  modernizing  administration of  IRM  programs  as
appropriate,  and  in building  a foundation for Federal  IRM for  the   next
decade.  The objective is to improve the efficiency and effectiveness of
Government  programs through better use  of information  resources.

Recommendations;

1.  OMB should  coordinate the development and adoption of a  Presidential
Initiative  to  focus  on  improving  service to  citizens by  enhancing  the
management  of  information  and  modernizing  information  systems
throughout the Federal government. This initiative would  set  an agenda for
the government  to  improve  its service, both  internally and  to the  public,
through  the  effective administration of IRM  programs and activities.

2.  AH government agencies  should fully  implement and  support the Chief
Information Officer (CIO) concept.  The CIO role should include:

    a.  Active participation in agency strategic  decision-making pro-
 cesses.

    b.  Agency-wide responsibility for oversight and  coordination of all
IRM  activities and functions.

    c. Primary focus on IRM activities.

    d.   A  cooperative,  working  relationship with the  agency  Chief
Financial  Officer  (CFO) and heads of other staff  and line  offices.

                                 15.

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            3.  The Federal IRM program can be strengthened in two ways: by balancing
            the role  of  Central  agencies providing  regulatory guidance  to  further
            emphasize  leadership and  support in using information resources, and  by
            further improving the quality of both  activities.

                a. To complement and enhance this leadership role,  central  agencies
            should further  emphasize consensus-building and  teamwork  among  all
            Federal agencies.

                b. Current  regulatory guidance and oversight at the  Bureau,  agency,
            Department, and  central  agency levels should be  evaluated  for efficiency
            and effectiveness and revised where  needed.

            4.   All agencies should  develop and  support infrastructure to  encourage
            and facilitate effective communications, sharing  and  cooperation  across
            and within  agencies.
£.
f                a.  GSA and OMB,  with the assistance of all agencies, should evaluate
*    .       and revise the  role,  purpose,  and  structure of  the Federal IRM Policy
            Council.

                b. All  agencies  should  implement  appropriate infrastructure  to
            facilitate   information  resources  sharing;   coordinate   standardization;
            broker cooperative application development and use; and support agency
            sharing of  procurement vehicles.

            5.   Major efforts should  be initiated to  ensure  that  agencies are able  to
            acquire  competitively-priced modern   information  systems  and  related
            technology  in a  reasonable timeframe.   The  goal  of this  effort should  be
            establishing a system  of acquisition programs  which  allows agencies  to
            acquire hardware, software and services in a  timely manner.

                a.  GSA  should foster  a "commodity computing"  and drop-in  technology
            program and a group licensing program.

                b.  Agencies,  working  through  their senior IRM  officials  and  in
            conjunction with  GSA, should  undertake  a   thorough  joint study  of the
            acquisition  process to determine if further  reforms are  needed.

                                             16.

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Next Steps:

This report is  the result  of  the  efforts  of many senior Federal  IBM
managers who  participated  in the  six study groups.   These managers
explored, in-depth, a select  number of major IRM  issues  which  must be
faced  between now and 1995.  The proposed actions and recommendations
of these  managers must now be considered by OMB, GSA  and the overall
IRM community.   Those actions chosen for implementation  will be tracked
by the study group chairpersons to monitor the progress being made.
                                17.

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                                                        Appendix A

                         Study Group Members

Developing a Program to Use Technology to Provide Better
Service to the Citizens

Chair:      Robert Woods    (202-366-9201)
           Department of Transportation

Members:

Alvin  Pesachowitz
     Environmental  Protection Agency
Marilyn McLennan
     Department of Commerce
Jim Larson
     Department of  Health and Human Services
Henry Philcox
     Internal Revenue Service
     Department of the  Treasury
Linda Berdine
     House Information  Systems
     House of Representatives

Extending the Trail  Boss Program

Chair:      Reed Phillips  (202-377-1300)
           Department of Commerce

Members:

Brigadier General "Star"  Carey
     Department of the  Army
Raymond Barrow
     Department of  Energy
Fred Sims
     General Services  Administration
Don Andreotta
     National Aeronautics and Space Administration
Frank Gugiielmo
     Department of Justice
                                 18.

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Rethinking the Strategic Planning Process

Chair      Wallace O. Keene  (202-453-1775)
           National Aeronautics  and Space  Administration

Members:

James Jadlos
      Department of the Interior
Wally Anderson
      General  Accounting Office
Charles  Neill
      Department of Justice
Edward Lewis
      Department of Veterans Affairs

Developing  a  Governmentwide  5-Year  Plan for  Information Technology
(IT)  Standards

Chair:     James  Burrows   (301-975-2822)
           National Institute of Standards  and  Technology
           Department of Commerce

Members:

Michael Corrigan
      General  Services  Administration
Al Hankinson
      National  Institute of Standards and Technology
Louis Grande
      Tennessee Valley Authority
Colonel Anthony Cira
      Department of the Air Force
S. W. "Woody" Hall
      Department of the Air Force
Thomas Dunn
      Internal Revenue Service
      Department of the Treasury
Thomas Bozek
      Department of Defense
                                 19.

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Developing Large. Highly  Integrated  Systems In an Evolutionary
Manner
Chair:
Members:
Lawrence  Cohan   (202-501-1333)
General Services  Administration
Helen M. Wood
      National Oceanic and  Atmospheric  Administration
      Department  of Commerce
Waliy Anderson
      General  Accounting Office
Don  Andreotta
      National Aeronautics and  Space Administration
Bruce Riggs
      Internal Revenue Service
      Department  of the Treasury
Thomas Giammo
      Patent and  Trademark  Office
      Department  of Commerce

Developing a Plan to Modernize Administration
Chair:
Members:
Alan Proctor   (202-326-2204)
Federal  Trade  Commission
Dale Seward
     Department of the Treasury
Edward Lewis
     Department  of  Veterans  Affairs
Jack Schroeder
     Internal Revenue  Service
     Department of the Treasury
     (representing  Federal  Data Center  Directors Council)
                                 20.

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