Human Capital Emphasis to optimize mission performance. Such modeling is referred to as developing and implementing enterprise architectures, which in the simplest of terms can be described as blueprints (both business and technology) for transforming how an organization operates. Included in these architectures are information models defining, among other things, what information is needed and used by whom, where, when, and in what form. Without having such an architectural context within which to view the entity in question, a meaningful understanding of the strengths and weaknesses of information sharing is virtually impossible. Currently, such an understanding within the homeland security arena does not exist. At OHS steps are being taken to develop enterprise architectures for each of the proposed department's four primary mission areas. According to the chief architect for this effort, working groups have been established for three of the four homeland security mission areas and they are in the process of developing business models (to include information exchange matrixes), that are based on the national strategy and that define how agencies currently perform these mission areas. For the fourth, which is information analysis and infrastructure protection (i.e., intelligence information sharing), the office is in the process of forming the working group. The goal of the groups is to follow OMB's enterprise architecture framework," and deliver an initial set of architecture models describing how homeland security agencies operate by December 31, 2002. Human capital is another critical ingredient required for homeland security success. The government-wide increase in homeland security activities has created a demand for personnel with skills in areas such as information technology, foreign language proficiencies, and law enforcement – without whom, critical information has less chance of being shared, analyzed, integrated, and disseminated in a timely, effective manner. A GAO report issued in January 2002 stresses that foreign language translator shortages, combined in part with advances in technology, at some federal agencies have exacerbated translation backlogs in intelligence and other information. These shortfalls have adversely affected agency operations "This framework provides for the following set of reference models: business, performance measures, data and information, application capabilities, and technology and standards. and hindered U.S. military, law enforcement, intelligence, counter terrorism and diplomatic efforts." GAO believes it is reasonable for certain human capital and management flexibilities to be granted, provided that they are accompanied by adequate transparency and appropriate safeguards designed to prevent abuse and to provide for Congressional oversight. Such flexibilities might prove useful to other entities involved in critical information sharing activities. Moreover, the proposed department, similar to other federal agencies, would benefit from integrating a human capital strategy within its strategic planning framework. Naturally, this framework would apply to the intelligence community at large, as well as other homeland security stakeholders. While recent events certainly underscore the need to address the federal government's human capital challenges, the underlying problem emanates from the longstanding lack of a consistent strategic approach to marshaling, managing, and maintaining the human capital needed to maximize government performance and assure government's accountability. Serious human capital shortfalls are eroding the capacity of many agencies, and threatening the ability of others to economically, efficiently, and effectively perform their missions. The federal government's human capital weaknesses did not emerge overnight and will not be quickly or easily addressed. Committed, sustained, and inspired leadership and persistent attention from all interested parties will be essential if lasting changes are to be made and the challenges we face successfully addressed. GAO's model of strategic human capital management embodies an approach that is fact-based, focused on strategic results, and incorporates merit principles and other national goals. As such, the model reflects two principles central to the human capital idea: ⚫ People are assets whose value can be enhanced through investment. As with any investment, the goal is to maximize value while managing risk. • An organization's human capital approaches should be designed, implemented, and assessed by the standard of how well they help the "US General Accounting Office, Foreign Languages: Human Capital Approach Needed to Correct Staffing and Proficiency Shortfalls, GAO-02-375 (Washington, D.C.: January 2002). organization pursue its mission and achieve desired results or outcomes. The cornerstones to effective human capital planning include leadership; strategic human capital planning, acquiring, developing and retaining talent; and building results-oriented organizational cultures. The homeland security and intelligence communities must include these factors in their management approach in order to leverage high performance organizations in this critical time. Institutional Oversight Finally, it is important to note that the success of our nation's efforts to defend and protect our homeland against terrorism depends on effective oversight by the appropriate parts of our government. The oversight entities of the executive branch – including the Inspectors General, the OMB and OHS - have a vital role to play in ensuring expected performance and accountability. Likewise, the committees of the Congress and the GAO, as the investigative arm of the legislative branch, have long term and broad institutional roles to play in supporting the nation's efforts to strengthen homeland security and prevent and mitigate terrorism. GAO recognizes the sensitive issues surrounding oversight of the intelligence and law enforcement communities, and we work collaboratively to find a balance between facilitating the needs of legitimate legislative oversight and preventing disclosure of national security and law enforcement sensitive information. Yet, as GAO has testified previously, our ability to be fully effective in our oversight role of homeland security, including the intelligence community, is at times limited. Historically, the FBI, CIA, NSA, and others have limited our access to information, and Congress's request for evaluations of the CIA have been minimal." Given both the increasing importance of information sharing in preventing terrorism and the increased investment of resources to strengthen homeland security, it seems prudent that constructive oversight of critical intelligence and information sharing operations by the legislative branch be focused on the implementation of a long term transformation program and to foster information sharing in the homeland security community. U.S. General Accounting Office, Central Intelligence Agency: Observations on GAO In summary, I have discussed the challenges and approaches to improving information sharing among homeland security organizations, as well as the overall management issues that they face along with other public sector organizations. However, the single most important element of any successful transformation is the commitment of top leaders. Top leadership involvement and clear lines of accountability for making management improvements are critical to overcoming an organization's natural resistance to change, marshaling the resources needed to improve management, and building and maintaining organization-wide commitment to new ways of doing business. Organizational cultures will not be transformed, and new visions and ways of doing business will not take root without strong and sustained leadership. Strong and visionary leadership will be vital to creating a unified, focused homeland security community whose participants can act together to help protect our homeland. This concludes my written testimony. I would be pleased to respond to any questions that you or members of the committees may have. Appendix I GAO Recommendations on Combating This appendix provides a compendium of selected GAO recommendations The information below details many of our key recommendations and the status of their implementation. The implementation of many of these recommendations may be affected by current proposals to transfer certain functions from a variety of federal agencies to the proposed Department of Homeland Security. Some of the recommendations have been modified slightly to fit into this format. |