IT Modernization: USDA Needs to Improve Oversight of Farm Production and Conservation Mission Area
Fast Facts
In 2017, USDA announced a major initiative to provide better customer service to U.S. farmers, ranchers, and foresters by modernizing its IT operations. A key IT project was the 2018 launch of Farmers.gov to provide online self-service applications, like a farm loan eligibility tool.
However, USDA has only minimally overseen the development of Farmers.gov. For example, the project has proceeded without cost and schedule estimates. Also, employees have raised issues with the usability and usefulness of Farmers.gov applications and tools.
We made 15 recommendations to USDA to help support its IT modernization and address customer service concerns.
Highlights
What GAO Found
In 2018, the United States Department of Agriculture's (USDA) Farm Production and Conservation (FPAC) mission area launched Farmers.gov to provide farmers, ranchers, and foresters with online self-service applications and business tools. USDA and FPAC have provided minimal oversight for Farmers.gov. Specifically, the governance boards did not conduct reviews at predefined checkpoints for Farmers.gov, as required by USDA's governance framework (see figure). This lack of oversight has allowed FPAC to proceed without developing key program documentation for Farmers.gov, such as project plans and cost and schedule estimates. Further, employee feedback on elements of Farmers.gov already deployed have raised a number of questions on the (1) usability of applications or tools that have already been deployed, and (2) risks that ongoing development efforts and software enhancements will produce deliverables that do not meet customer needs. Improving USDA oversight of Farmers.gov and developing repeatable processes that align Agile methodology to USDA's governance framework can help address these concerns and lead to enhanced service for intended customers.
Status of Required Governance Reviews and Key Documentation for the Farm Production and Conservation‘s Farmers.gov program, as of April 2021
FPAC had not fully implemented key leading practices supporting IT workforce planning, duplication and overlap, and customer service that are necessary to ensure success. Specifically, FPAC had not implemented seven of eight IT workforce planning activities. Until it does, FPAC will be limited in its ability to address gaps in knowledge and skills. Further, while FPAC had several IT modernization initiatives underway as of March 2021 to maximize efficiencies and reduce IT duplication and overlap, it had not developed a mission area strategic plan that included the associated performance goals and measures to monitor IT program performance against efficiency goals. Moreover, while FPAC had actions and plans to address customer service measures and associated targets and goals, it had yet to fully implement this activity. Implementation of these key IT modernization practices would provide greater assurance that FPAC is meeting the needs of farmers, ranchers, and foresters.
Why GAO Did This Study
In 2017, USDA combined three of its agencies under the FPAC mission area to, among other things, improve customer service for farmers, ranchers, and foresters. For fiscal year 2020, FPAC reported obligating a total of $229 million on IT investments to support its mission.
GAO was requested to review USDA's IT modernization efforts to improve customer service for farmers and ranchers. For this report, GAO examined the extent to which (1) USDA and FPAC are effectively overseeing the development of Farmers.gov; and (2) FPAC's IT workforce planning, efforts to reduce duplication and overlap, and customer service are consistent with leading practices. To do so, GAO compared key Farmers.gov documentation to USDA's IT investment oversight policies and procedures. GAO also compared departmental documentation to leading practices for IT workforce planning, duplication and overlap, and customer service. For both objectives, GAO interviewed cognizant agency officials to obtain their views and verify the information provided.
Recommendations
GAO is making 15 recommendations to USDA to strengthen program oversight and address key IT leading practices supporting its IT modernization. USDA concurred with all recommendations and described actions it is taking to implement each of them.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Agriculture | The Secretary of Agriculture should direct the E-Board to establish and execute a regular schedule to review, approve, and recommend IT investments. (Recommendation 1) |
In April 2022, the department provided an updated E-Board charter, signed by the USDA Deputy Secretary, that requires quarterly meetings. The department also provided evidence that the board had met quarterly since July 2021 and the meetings included recommendations and approvals regarding IT investments. With continued oversight, the department can ensure timely delivery in meeting planned cost, schedule, and performance objectives.
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| Department of Agriculture | The Secretary of Agriculture should direct the E-Board to consider the extent to which it should review and approve decision points that have passed and the associated required documents for Farmers.gov, in accordance with the requirements of the USDA Integrated IT Governance Framework and the approved tailoring agreement. (Recommendation 2) |
In April 2022, the U.S. Department of Agriculture's (USDA) Executive Information Technology Resource Investment Board (E-Board) met to review, discuss, and make recommendations concerning Farmers.gov, in accordance with the requirements of the USDA Integrated IT Governance Framework. The E-Board's review resulted in the approval to combine decision gates 3 through 6 through an updated tailoring agreement, as documented in an April 2022 decision memorandum. By aligning their reviews to USDA's governance framework and conducting decision-gate reviews, the E-Board better ensured oversight and timely delivery in meeting planned cost, schedule, and performance objectives for Farmers.gov.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the FPAC Assistant Chief Information Officer to provide clearly documented guidance that supports a consistent and repeatable process for how a program office should apply Agile development methodologies in a manner that is consistent with the department's expectations for IT oversight. (Recommendation 3) |
The U.S. Department of Agriculture's (USDA) Farm Production and Conservation (FPAC) mission developed a framework (Called the Navigable IT Manufacturing Process Framework Model), which officials stated they began implementing in April 2020, and provided supporting documentation. The model demonstrates how the software development lifecycle processes, Agile development methodologies, and governance framework are aligned. Officials demonstrated how the framework was applied through a tailoring process to one program. In February 2024, FPAC officials issued a memo formally incorporating the process into the agency's lifecycle development process. As result of the actions, FPAC has clearly established repeatable expectations for how a program office should apply Agile development methodologies consistent with the department's IT oversight expectations.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of establishing and maintaining a workforce planning process. (Recommendation 4) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of developing competency and staffing requirements. (Recommendation 5) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of assessing competency and staffing needs regularly. (Recommendation 6) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of assessing gaps in competencies and staffing. (Recommendation 7) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of developing strategies and plans to address gaps in competencies and staffing. (Recommendation 8) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of implementing activities that address gaps in competencies and staffing. (Recommendation 9) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of monitoring the agency's progress in addressing competency and staffing gaps. (Recommendation 10) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Business Center Chief Operating Officer to have the FPAC mission area implement the key IT workforce planning activity of reporting to agency leadership on progress in addressing competency and staffing gaps. (Recommendation 11) |
In August 2023, agency officials noted that the U.S. Department of Agriculture's Workforce Steering Committee had updated the technical competencies for its IT workforce. Subsequently the FPAC Human Resources group used the updated competencies to develop a competency assessment process. However, agency officials stated that that the assessment process was put on hold. FPAC officials noted that in August 2023 they began the process of restarting the competency assessments. We will continue to review FPAC's progress in this area.
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| Department of Agriculture |
Priority Rec.
The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Assistant Chief Information Officer to have the FPAC mission area develop a strategic plan, in alignment with departmental policies and procedures, to include performance goals and measures for maximizing efficiencies and reducing IT duplication and overlap. (Recommendation 12) |
As of February 2024, the department stated that FPAC's mission area IT strategic plan was still in the review and approval process. Agency officials did not provide an estimated completion date. We will continue to monitor the status of this recommendation.
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| Department of Agriculture |
Priority Rec.
The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Assistant Chief Information Officer to have the FPAC mission area monitor IT program performance against efficiency goals and measures documented in its plan for maximizing efficiencies and reducing IT duplication and overlap. (Recommendation 13) |
In August 2023, agency officials noted that they were developing metrics dependent on the FPAC IT strategic plan. However, as of February 2024, the IT strategic plan was still in the review approval process. We will continue to monitor the status of this recommendation.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Director for Customer Experience to establish baselines and measures for customer service performance, and targets and goals associated with the progress. (Recommendation 14) |
In August 2023, USDA officials stated that the FPAC Customer Experience division had gathered feedback and completed analysis of the 2020 Producer Satisfaction Survey. Officials developed performance indicators associated with improving customer experience feedback and customer experience support. The agency developed indicators associated with these improvements. For example, officials developed real-time customer satisfaction surveys to collect customer feedback on the performance of key websites providing customer service. They also developed detailed goals and targets to support customer experience, including to provide 24/7 web-based access to certain services. As a result of its actions, USDA will be able to improve its insight into its customer service to producers.
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| Department of Agriculture | The Secretary of Agriculture should ensure that the Under Secretary for Farm Production and Conservation (FPAC) directs the Director for Customer Experience to establish a timeframe for releasing the customer service survey results and plans for addressing the customer feedback to the public. (Recommendation 15) |
In August 2023, agency officials stated that after finishing analysis of the 2020 Producer Satisfaction Survey, the FPAC Customer Experience Division developed multiple plans for addressing customer feedback. While FPAC officials had previously stated that they intended to release the survey results to the public, agency officials stated that they subsequently determined that the specific results would not be released. The agency has since released multiple customer experience action plans to the public through the federal government's high impact service providers website. As a result of its actions, USDA will improve transparency into its customer experience plans.
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