Testimony of Sherry Higgins, Project Management Executive
for the Office of the Director, FBI
Before
the Senate Judiciary Subcommittee on Administrative Oversight
and the Courts
July 16, 2002
"FBI Infrastructure"
Good
morning. I'm Sherry Higgins, the FBI's Project Management
Executive for the Office of the Director. I have been asked
to talk to you about how the FBI is fixing old problems and
building a collaborative information infrastructure to better
support our mission. I have also been asked to share with
you some personal perspectives on how the FBI differs from
the private sector in developing our computing infrastructure.
Today,
we live in a dangerous world, where criminals and terrorists
exploit advances in technology to perpetrate crimes against
United States citizens and our national interests. High-speed
digital and wireless communications, including the Internet,
are the "tools of choice." Instant global communication
has expanded traditional organized crime and allowed terrorists
to operate from the remotest of areas.
These
kinds of abilities helped facilitate the 9/11 attacks. In
response, Director Mueller is restructuring and reshaping
the FBI to better fit a new mission with different priorities
and to put in place the analytical and information sharing
capabilities needed in the post-9/11 environment.
A component is the information infrastructure necessary to
enhance our ability to collect, store, search, retrieve, analyze
and share information. Prior testimony before Congress has
described the problems the FBI is experiencing because of
outdated technology. Thanks to support from Congress, the
FBI has embarked on the information infrastructure revitalization
that I will describe today and that is well under way. A word
of caution, however. The FBI's problems with information technology
didn't occur over night and they won't be fixed over night
either. That is because it is more important to get it right
and know that we have the systems and capabilities that precisely
fit our mission as well as cure past problems.
The
first major step in this direction is our Trilogy Program.
The Trilogy Program was designed as a 36-month effort to enhance
our effectiveness through technologies that facilitate better
organization, access and analysis of information.
The overall direction of the Trilogy Program is to provide
all FBI offices with improved network communications, a common
and current set of office automation tools, and easy-to-use,
re-engineered, web-based applications. Our Trilogy system
consists of 3 components:
·
Information Presentation Component (IPC). Hardware and software
within each office to provide each employee with a current
"desk top" environment and equipment.
· Transportation Network Component (TNC). High-speed
connections linking the offices of the FBI.
· User Applications Component (UAC). Five user-specific
software applications to enhance each employee's ability to
access, organize and analyze information.
The
Information Presentation Component relies primarily on commercial-off-the
shelf (COTS) hardware and software products that provide a
modern desktop environment and connectivity, thus facilitating
employees' ability to input, retrieve, manipulate and present
information in text, image, audio and video formats. The Information
Presentation Component is replacing our antiquated computer
workstations, providing an updated e-mail capability, and
includes simple things like additional printers and scanners
that increase productivity. This component is nearing completion.
The
Transportation Network Component is simply the telecommunications
network consisting of high-speed connections linking the offices
of the FBI, and the hardware, software and new workstations
within each office to link at high speeds the entire FBI.
It will provide connectivity between FBI facilities (via a
WAN) and within FBI facilities (via a LAN), so that investigative
information and analysis may be shared among agents and analysts
easily, accurately, rapidly and securely, and at the high
data volumes our new applications support. This is nearing
completion as well.
The
User Application Component is replacement of user applications
that will enhance our ability to access, organize and analyze
information. Specifically, the Trilogy Program will migrate
five investigative applications into a "Virtual Case
File" (VCF), to provide user-friendly, web browser access
to mission critical information. A web-based interface will
enable our users to have a graphical interface with investigative
information. It will eliminate the cumbersome aspects of our
current system, greatly enhance our collaborative environment
and go a long way towards eliminating the problems obvious
from Hanssen and McVeigh.
Under
the FBI's old legacy investigative information system, the
Automated Case Support (ACS), users navigate with the function
keys instead of the point and click method common to web based
applications. Simple tasks, such as storing an electronic
version of a document today, require a user to perform twelve
separate functions, in a "green screen" environment.
That will soon change with Trilogy. Automated workflow will
allow for a streamlined process to complete tasking. Storing
a document for the record will occur with a click of the mouse
button. This will make investigative and intelligence information
immediately available to all personnel with appropriate security.
Enhanced
ad hoc reporting, online information sharing and state-of-the-art
analytical tools will permit those conducting investigations
and analyzing data to easily organize and filter events and
trends. Representatives from our field offices who are defining
the VCF user needs are also challenging current FBI business
practices to improving workflow and to ensure that archaic
business rules are not automated.
Multimedia
functionality will allow for the storage of information in
its original form. Under the old system, agents cannot store
non-compatible forms of digital evidence in an electronic
format, instead having to describe the evidence and indicate
where the evidence is stored in a control room. Multimedia
functionality will facilitate electronic storage of digital
evidence and media to the investigative case file, allowing
access to the information from the desktop.
Trilogy
also includes an Enterprise Management System (EMS), that
supports all three of the components of the Trilogy Program.
The EMS will allow the FBI to configure, monitor and administer
information systems and components through a central Enterprise
Operations Center (EOC), with local Field Office visibility
into the status of equipment at their location. The EMS will
gather and provide appropriate IT system metrics for Trilogy
from the operations center. EMS functions include mandatory
and optional capabilities for fault, configuration, accounting,
performance, and security management.
The
original plan for Trilogy was development and deployment over
36 months from the date of the contract awards for the infrastructure
and applications development, May and June 2001, respectively.
The events of September 11, 2001 impacted many aspects of
the FBI, including the Trilogy Program. The urgent need for
improved information technologies prompted the Director to
request that Trilogy implementation be accelerated, with emphasis
on those capabilities most urgently needed to support the
FBI's priority cases.
In response,
Congress provided additional funding and Trilogy's network
and desktop infrastructure improvements were accelerated.
The resulting improvements are significant.
Infrastructure
enhancements are being deployed in two phases. The first phase,
called "Fast Track", is installation of Trilogy
architecture at our 56 Field Office locations and as many
of our Resident Agencies as can be completed before the second
phase begins. This consists of new network printers, color
scanners, local area network upgrades, desktop workstations,
and Microsoft Office applications. By the end of April 2002,
deployment at all 56 FBI Field Offices and two Information
Technology Centers (ITCs) was completed. Fast Track is continuing
to deploy this infrastructure to our Resident Agencies.
The
second phase of infrastructure deployment is called "Full
Site Capability," representing the complete infrastructure
upgrade. The full upgrade will provide the wide area network
connectivity together with new encryption devices to protect
our data, new operating systems and servers, and new and improved
e-mail capability. The WAN design also has been enhanced to
eliminate possible single points of failure. Completion of
this phase was moved from the accelerated date of July 2002
to March 2003 to allow additional time to test and deploy
a secure, operational system.
The
Enterprise Operations Center (EOC) facilities, circuit and
bulk fiber installations, electronic key management system,
and installation of encryptors are all on schedule.
User
training on the new desktop office automation software has
begun and a new training management system deployed.
The
UAC component is scheduled to be delivered by January 2004,
or four months ahead of the original schedule. And although
the Trilogy Program is accelerating the network and desktop
infrastructure ahead of applications development, there are
significant benefits to modernizing the infrastructure before
the upgraded applications are available. Infrastructure enhancement
will immediately provide FBI field offices the high-speed
connections to link with one another (and within each office)
and share investigative and administrative information currently
available in their legacy systems. It will provide nearly
every FBI employee a modern desktop, and applications and
database productivity tools, which will significantly enhance
work productivity.
Further,
during the interim while Trilogy UAC is under development,
the FBI is enhancing some of our existing legacy systems to
enable web access to certain applications. So, for example,
two new capabilities are the Case Control system and Global
Index Application. The Case Control system was delivered in
April 2002; the Global Index Application was delivered in
April 2001. The Case Control System keeps track of the location
of each Counter-terrorism related hard copy file, as it is
routed to our field divisions and nine scanning centers; this
ensures that all files are scanned and accurate file locations
maintained. The Global Index Application allows the user to
search for a name, date of birth, address, and/or phone number,
against four of our main investigative applications systems
(ACS, IIIA, CLEA, and TA), with one query, returning basic
case information.
The
User Application development is now planned in two increments.
The initial VCF release will migrate data from the current
Automated Case Support (ACS) and IntelPlus to the VCF. VCF
Release One has a targeted completion date of December 2003.
This release will allow different types of users, such as
agents, analysts, and supervisors, to access information from
a "dashboard" that is specific to their individual
needs. This VCF release will also enhance our capability to
set and track case leads, index case information, and move
document drafts more quickly through the approval process,
with digital signatures.
The
second release will migrate the Criminal Law Enforcement Application
(CLEA), Integrated Intelligence Information Application (IIIA),
and Telephone Application (TA) into the VCF. VCF Release Two
has a targeted completion date estimated for June 2004. It
will provide Audio/Video Streaming capability and provide
our agents with "content management" capability.
This will help them access information from our data warehouse,
regardless of where in the system the information was entered.
For the first time we will have a "one query does it
all" capability.
The
VCF Team is currently using an industry-standard process called
Joint Application Development (JAD) planning, to define and
prioritize the users' operational requirements. By joining
the application developers with the users (agents, analyst,
and support personnel), applications will be built that will
reflect the items needed by these individuals to perform their
jobs. This approach differs from the old way of doing business:
figuring out how to do your job with the tools you already
have. JAD is not a rebuild of the old system. It has brought
users, designers, future systems operators together to develop
applications that are operationally sound and maintainable.
JAD sessions started at the end of January this year and are
expected to conclude next week. Additional JAD sessions will
take place as part of the process for VCF Release Two.
As with
any automation project, a number of risks must be managed
to a have a successful Trilogy Program deployment. The top
three are all related to our aggressive deployment schedule.
I believe all are manageable. They are: TNC/IPC and UAC test
and acceptance; the enterprise operations center; and legacy
system interoperability.
Before
we deploy our Full Site Capability infrastructure to the field,
we need to test the desktops, servers, and networks to ensure
that there are no problems with our final configuration. Our
current schedule allows a tight allocation of time for testing,
which leaves little room for resolving potential problems.
To mitigate this risk, the test team is prioritizing requirements
and developing a common understanding of system acceptance
test coverage, conditions, and criteria. Once identified,
the plan is to test the most critical aspects of the system
first, and, if necessary, continue testing the non-critical
areas during initial deployments.
Our
aggressive schedule also leaves little time for EOC preparations
in support of the deployed infrastructure. To mitigate this
risk, current available EOC staff will be trained to support
the Trilogy infrastructure and additional external resources
will be identified for full operational support at the start
of FSC deployment. Finally, contractor personnel will be utilized
to supplement government staff for network services, central
systems, security and the data center.
Interoperability
with legacy applications is another risk area. There is currently
a lack of documentation in place that captures the old legacy
system functions and operations. Therefore, the UAC team is
still identifying new interfaces and modifications to existing
interfaces. Our schedule allocation for engineering and testing
may not be adequate for successful integration infrastructure
deployment with the current applications and servers. To mitigate
this risk, the test team is also prioritizing these test requirements
and developing a common understanding of system acceptance
test coverage, conditions and criteria.
Once
we catch up to a standard PC environment, the future looks
very positive. We are planning for a technology refreshment
program (TRP) which will replace Trilogy network and workstation
hardware, network data storage, server hardware, and embedded
software on a periodic basis to prevent system performance
degradation and rising O&M costs due to obsolescence.
The TRP also envisions the incorporation of new technology
as it becomes available in the private sector and the study
of emerging technologies to evaluate potential future uses
and benefits and to better anticipate future resource needs.
In essence, a viable infrastructure technology refreshment
plan is essential to maintain the benefits of the Trilogy
investment, the efficiency and capabilities of FBI investigative
support systems and to better plan and budget for out year
expenditures.
I have
been asked to provide my personal perspective on what I have
changed since reporting to the FBI this March, and how the
FBI contrasts with my experience in the private sector.
Before
my arrival at the FBI, the Trilogy Program was overly focused
on achieving an accelerated schedule. Although the Trilogy
Program will still be brought in ahead of its original schedule,
we have begun allowing for more test time to ensure we deliver
a quality product to the field. Industry best practices recommend
"building in quality", instead of "inspecting
it in". Using quality standards and compliance up front
will allow us to identify and prevent mistakes that would
require expensive fixes later on down the line.
Effective
communications within and without the Trilogy Program is also
essential to our success. I am in the process of developing
a Trilogy Communications Plan that will promote effective
communications across our business enterprise, so that valuable
development information is not retained in pockets.
I am
also developing an integrated master schedule for the Trilogy
Program, which will reflect the program's critical path, dependencies
and integration tasks between our three components. We will
constantly review this schedule to capitalize on efficiencies
and schedule improvement opportunities.
One
of the striking differences between the private sector and
the FBI is the Bureau's lack of a dedicated corps of acquisition
specialists with which to plan, develop and manage large projects.
The FBI has many talented people with some of these requisite
skills; we have pockets of expertise in program management
disciplines, such as financial analysis, budgeting, contract
management and system engineering, residing in different divisions.
However, the FBI has operated for too long without an organization
responsible for proper development business practices, which
would ensure that FBI systems under development are responsive
to our users' requirements.
Private
industry and most government agencies recognize the advantages
of instituting a project management executive with a project
management office to manage complex, expensive, high-risk
development efforts. According to the Gartner Group, "enterprises
utilizing a project office to manage the growing complexity
involved with creating or acquiringand then implementing
and managingthese applications have a distinct advantage
over those that do not.". Perhaps the most frustrating
experience I have had since coming to the FBI from private
industry is trying to work information technology issues that
cut across the FBI's organization. "Stove piped"
communications internal to the FBI prevents information and
communications flow that is required to be responsive to our
users and oversight. Successful project development and implementation
at the FBI requires constant and accurate communications across
our entire business enterprise.
To make
this a reality, I have recommended, and Director Mueller has
approved of the establishment of an Office of Programs Management.
This office will develop, manage, and deploy high-priority,
complex and high-risk projects of high dollar value, to successfully
support the FBI's operational mission. The office will have
a staff of subject matter experts in key program management
functions, matrixed to development project managers. These
project managers will be "loaned" from their sponsoring
divisions to the Office of Program Management during the development
of the project, from the concept phase until the project is
ready to be transitioned to operations.
In addition,
the Office of Program Management will be charged with using
repeatable processes for these efforts; in other words, we
will implement a business approach to our large acquisition
efforts, by instituting core program management disciplines
from a project's concept phase until it is transitioned to
operations and maintenance. We will train a skilled corps
of FBI PM subject matter experts, and advise the FBI Director
on program management and acquisition-planning related organizational
issues, proposals, and strategies.
Because
of its user/management orientation, the Office of Program
Management will be in a position to make the most informed
recommendations concerning trade-offs between performance,
schedule, and costs of projects, to determine the best course
for return on the FBI's investment in IT. This office will
also gauge the impacts of delays of delivered functionality
for the field divisions and headquarters, and develop budget
justifications for the acquisition of required resources to
support approved systems projects.
In summary,
Trilogy gives the FBI workable standards and a base it can
build upon. Trilogy is being built to allow for interchanges
with different systems, internal and external, so that the
historical problem of "not putting the pieces together"
is no longer an issue. Trilogy will provide the resources
and tools the FBI needs to support investigations and the
critical building blocks for future improvements. The Trilogy
Program is focused on getting these critical resources to
our Special Agents and field support personnel as quickly
as possible.
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