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: Forest Service A Framework for the Future Preface

In June 1991, the Chief assigned a national team to develop a Forest Service strategic plan. This team reviewed current Forest Service information management procedures and initiatives, external information, and other companies’ and agencies’ experiences in information management. The team tested a draft vision and against a wide cross section of Forest Service employees before presenting these recommendations to Chief and Staff, Regional Foresters, and Direc- tors, all of whom have accepted the recommendations and have committed to support their implementation. The following report (1) summarizes this effort, (2) provides a vision and framework to move the Forest Service to an integrated information management environment with field involvement and commitment, and (3) recommends specific strategies to translate the vision and framework into needed actions.

Strategic IM Team: Chip Cartwright, Assistant Director, New Perspectives, WO Skip Coghlan, Deputy Director, , WO Judith Dudley, Branch Chief, Fiscal and Public Safety, WO Don Eagleston, and Staff, WO Bob Hamre, Information, Rocky Mountain Station Jim Haskell, Information Staff, WO Vicki Jackson, and Telecommunications Staff, WO John King, Information Systems Staff, WO Bob Joslin, Deputy Regional Forester, Region 4 Dennis Keaton, Director, Management Systems, Region 8 Linda Knowlton, Aviation and Fire Management Staff, WO Dave Miller, Information Systems Staff, WO Hank Montrey (Chair), Director, Rocky Mountain Station Bill Nelson, Computer Science and Telecommunications Staff, WO Lou Romero, Organization and Development, Region 3 Clyde Shumway, Computer Science and Telecommunications Staff, WO Kathy Solberg, Director, Personnel Management, Region 1 Bill Sommers, Director, Forest Fire & Atmospheric Research, WO Jim Space, Director, Forest Pest Management, WO Clyde Thompson, Director, Information , Region 5 Lou Weltering, Information Systems Staff, WO Dave Wright, Forest Supervisor, Allegheny NF, Region 9 USDA Forest Service February 1992

Information Management: A Framework for the Future

by

USDA Forest Service Strategic IM Team Contents

HIGHLIGHTS ...... 1.

THE FRAMEWORK ...... 1.

VISION, ETHIC, AND PRINCIPLES ...... 2 Vision ...... 2 . Ethic ...... 3 . Principles ...... 3 .

WHY CHANGE? ...... 4.

STRATEGIES ...... 4 . 1: A Chief Information Officer ...... 4 Strategy 2: An Information Management Advisory Group...... 5 Strategy 3: A Standard Methodology ...... 6 Strategy 4: Involving Interdisciplinary Teams ...... 7 Strategy 5: Involving Managers and Technical Staff ...... 7 Strategy 6: Acquisitions Support the Framework...... 8 Strategy 7: Information and Training Plans ...... 9

SUPPORTING DISCUSSIONS ...... 10 What is Information Management? ...... 10 Modeling ...... 12. Standardization ...... 13. Benefits and Costs ...... 13. Ongoing Information Management Developments ...... 14 Implementation and Commitment ...... 15 Roles and Responsibilities ...... 17 Information Management: A Framework for the Future

HIGHLIGHTS Recurring themes in this report are the need for the Forest Service to: To maintain our leadership in natural , research, and technical assistance recognize that sharing and managing into the 21st century, the Forest Service needs to information are critical to performing the take advantage of expanding technology to more mission and business of the organization, effectively , display, and use our critical and information resource. organize information management around Presently, the Forest Service has numerous the way the Forest Service conducts its individual systems functionally supporting business, which will require integration of Forest Service programs. Although these systems current functional systems. are superior to those in many agencies, they are not adequately linked to integrate data and Implementation of recommended strategies thereby generate the optimum information will require: needed to support decision making, minimize ● strong commitment of Chief and Staff, duplication, and satisfy external requests. Regional Foresters, and Directors, The Forest Service can best maintain its leader- ship through integrated data systems developed ● establishment and empowerment of a full- and managed within a coordinated framework of time Chief Information Officer (CIO) the Forest Service programs and external infor- position with appropriate technical sup- mation needs. port, and Achieving this desired will require a clear vision, or focus on the goal, and strategic guide- ● understanding, acceptance, and support lines for moving toward the vision. Achieving the throughout the organization of an infor- vision will require strong management commit- mation resource ethic that has corporate as ment, broad understanding and field involve- well as local or functional value. ment in change, and a well-structured, business- process-driven, and standardized and methodology. The challenges, THE FRAMEWORK costs, and impacts of achieving the information The Forest Service Information Management management vision are significant, but the ben- Framework (fig. 1) includes a vision of a desired efits will include improved long-term ability to future information environment, and the process respond to issues with readily available, by which we will migrate to that new environ- information, more informed decisions, better ment. Inherent in the vision are fundamental exchange of information with our partners and principles and ethics which will provide a major customers, less criticism of our decentralized improvement over our traditional ways of deal- organization, and less information and ing with information. As part of the Framework, duplication expense.

1 several strategies have been described which will With these opportunities, the Forest Service initiate, support, and maintain the movement to envisions a new information management envi- the new information environment with interdisci- ronment where data are entered only once at the plinary field involvement. source, shared and available to all users, and Presently we have an information environment systematically integrated with Forest Service characterized by unconnected local and func- plans and programs. The new environment will tional data bases individually supporting Forest handle graphical as well as textual information, Service plans and programs. This environment and support the decision-making and responsive- has served our decentralized organization and ness missing in the current environment. management approach, but has been a barrier to The migration from our current local informa- interdisciplinary program development and tion environment to a shared information envi- implementation. The inconsistently defined data, ronment will be a long and challenging evolution. duplicated in unconnected and sys- The process will require a very structured, orga- tems, has led to wasted effort in data collection nized approach built upon interdisciplinary field and maintenance, and incompatible information involvement. It will take working together to that cannot be effectively brought together for standardize those widely used, commonly under- quality decision making or timely, consistent stood, and persistently needed data and informa- response to requests for information. This has tion for the greatest Forest Service benefit rather resulted insignificant criticism of Forest Service than for individual or functional benefit. Migra- management and our decentralized organization. tion to the new information environment will This current situation brought into focus the require leaders and program and information need for change. The groundwork for change was specialists to work together. This process is laid when the Forest Service implemented the consistent with current Forest Service manage- Data General system, introducing a Service-wide ment philosophy. distributed electronic and ethic. VISION, ETHIC, AND PRINCIPLES Newer are now available for processing graphic information, more efficiently Vision managing electronic information, and providing . greater capacity and user service. Our Information Management Vision pictures a desired future condition in which the Forest Service: Recognizes information as a resource critical to our success.

Shares and manages information in ways that support the mission and business of the organization.

Strives, as a commonly understood, ac- cepted, and supported goal, to bring quality information, in the right form, to the right people at the right time to sup- port sound and deliberate decisions and to Figure 1.—The USDA Forest Service Information Management generate ideas. Framework.

2 When we achieve this state: ● We subscribe to the value of and need for corporate standards, but also strive for ● Employees at all levels will better under- flexibility so that our individual creativity stand the Information Management meth- in getting our personal job done is en- odology as it relates to the business of the hanced. Forest Service, the importance and role of information as a resource in support of ● We recognize the need to synergize our that business, and the need for clearly local and functional information agendas identified, essential standards for data and with the corporate information agenda. information elements. ● We value having a consistent technology ● Management will be visibly involved in platform that is available to all employees development and committed to imple- in all offices, and strive to use the corpo- mentation of national information man- rate technology platform whenever practi- agement investments, , and proce- cal so that we do not isolate our informa- dures. tion from others who could beneficially use it. ● The information management environ- ment will generate quality information that can be used by all levels of the organi- Principles zation and by external partners in accom- plishing the business of the Forest Service. Embodied in the Vision and concept of infor- mation management are a number of basic prin- ● Management will recognize the invest- ments, and will commit the resources to ciples: implement information management ● Information management is an integral decisions. part of every Forest Service program.

● Information policies and technologies will ● Information systems are designed to help anticipate future needs and new develop- meet business needs. ments, reflecting internal and external considerations. ● Data are captured at their source as a natural course of conducting Forest Ser- vice business. Ethic ● Data are entered once and used often. Realizing the Vision will depend on each of us recognizing and seeking to practice an ethic in ● A shared data environment consists of which: integratable data bases coordinated through modern tech- • We subscribe to the notion that people nology. who develop and manage information are stewards of the information, not owners. ● Widely used, commonly understood, and persistent data, information, and processes ● We recognize we are stakeholders in the information management Vision and are standardized. Principles, and strive to help the organiza- tion achieve them.

3 ● Data are consistent to the extent that ● Anticipate coming issues, and implementation at each level, and across units, is compatible and mutually support- • Monitor Forest Plans. ive. It will position us with the information manage- ment technology that: . A shared-data environment ensures that information is available to employees and ● Supports our plans, programs and pre- processes as needed. cess,

. Data and information are shared with ● Supports functional needs, and external cooperators and the public. ● Facilitates integration of functions where . A technology infrastructure exists to desirable. support the business of the Forest Service It will achieve numerous internal efficiencies and at all locations. cost savings, including: • Shared data, WHY CHANGE? ● Data entered only once at the source,

There are compelling why the Forest • Less duplication, and Service should adopt the Information Manage- ment Framework. It will enhance our ability to: • Less time aggregating and reconciling

● Respond to requests for information, inconsistently defined data.

• Exchange information with users and STRATEGIES partners,

• Exchange information internally,

• Provide Chief and Staff with useful infor- The Chief Information Officer (CIO) is a mation, full-time SES position responsible for leading and facilitating Forest Service . Provide the same information for all line movement into an integrated data and and staff officers, and information environment. The CIO super- vises functions currently performed by InS ● Provide consistency between messages and CS&T, and reports through the Deputy and actions at national and field offices. Chief for Administration. It will help us: . Reduce criticism of the Forest Service for Discussion: lack of timely, consistent responses to requests, To improve information quality for manage- ment and decision making, we need to change ● Reduce criticism of the Forest Service the leadership structure we have provided for decentralized organization, information management. Establishing a full-time CIO will provide a visible, executive-level focus • Respond to current issues,

4 on the development and maintenance of an Discussion: integrated information environment that has not been previously evident. The new Information Management Framework This position will provide a single, focused (fig. 1) requires a new way of dealing with infor- direction and coordinated leadership for the mation. What is required is no less than a change functions presently charged with information in the Forest Service culture, from the present management in the Forest Service. This will way of developing, maintaining, and owning provide more balanced information while information systems in isolation to an environ- still maintaining decentralized decision making. ment of sharing cooperation, and The CIO will orchestrate the information manage- across all functional and organizational levels. All ment decision-making process that will move the of this must be carried out in an open, participa- Forest Service from its current situation to the tory process. To be successful, the CIO will have desired information environment. The value of a to involve all functional areas and organizationl focused, executive-level information manager is levels, and enlist their support and cooperation. demonstrated in successful examples of inte- While much will depend on the personal leader- grated information programs. ship qualities of the CIO, functional and field Establishing an executive-level CIO position in involvement, acceptance, and support will be the Administration Deputy area is consistent with facilitated by an Information Management Advi- the Chief's decision to designate the Deputy Chief sory Group. for Administration as the agency comptroller. This Advisory Group will help the CIO imple- Designating the CIO as a full-time SES position ment the recommended strategies in this report will give the Chief several alternatives for filling (see Strategy 4). It will serve as a sounding board the position. for the development of implementation plans, the development and adoption of new policies, and, perhaps most importantly, the structuring of Next Steps: additional ad hoc teams to address specific imple- mentation plans. These ad hoc teams will be the Chief and Staff will: action teams necessary to implement the recom- 1. Determine organizational structure. mendations of this report, as opposed to the long- term, advisory nature of the Group. The Advisory 2. Obtain any needed SES position authority. Group will also insure that decisions are raised to the appropriate level of the organization, and that 3. Fill the CIO position. the information management agenda is visible throughout the organization. Task forces and teams are commonly used within the Forest Service to achieve consensus on issues and to facilitate the implementation of decisions. The purpose and value of this Group is The CIO has the support and assistance of similar-to provide abroad point of view to the an Information Management Advisory CIO to insure that proposed decisions and activi- Group, appointed by Chief and Staff, for ties meet the Forest Service’s needs, and to enlist advice on how to involve the rest of the across-the-board support. To that end, it should Forest Service, and to structure interdiscipli- be structured to incorporate both field and WO nary ad hoc teams to carry out needed personnel, and, within these two groups, repre- work. sent both technical (systems) and operational areas. Diversity of viewpoints is an essential asset.

5 Next Steps: the program people and information people together to model the business of an organization. The products of this activity thus exhibit the level 1. The Deputy Chief for Administration will of consistency and uniformity needed to achieve solicit participation in the Advisory Group integration of our information and business from field units and WO staff. processes. 2. After the CIO is selected, the CIO and A number of cooperative pilot efforts, such as Deputy Chief for Administration will the District Production , the propose Advisory Group membership to Integrated Personnel System Project, and the Chief and Staff. Resource Management Information Project, have tested various methods and tools. This testing 3. Chief and Staff will appoint members of provides the basis for the agency to select one the Information Management Advisory such method as the Forest Service standard. Group. The pilot efforts have used various methodolo- gies, and this has limited the compatibility of their results. This experience, and that of other organizations successful in this area, lead to the conclusion that it is better to adopt a single meth- odology and get on with implementation than to The Forest Service uses a single, structured, make an extended effort testing different method- business-driven, standard methodology for ologies. While this decision would logically fall to integrating our information, such as one of the CI0, making the decision concurrently with the information engineering methods filling the CIO position will expedite overall already being applied in several Forest implementation. Thus the Deputy Chief for Service pilot . The Deputy Chief for Administration, through whom the CIO will Administration will determine the standard report, will make the decision by March 1,1992, methodology by March 1,1992, after con- after soliciting appropriate advice. sidering lessons and results from pilot projects. Next Steps:

Discussion: The Deputy Chief for Administration will: 1. Solicit input from pilot projects and others To achieve a truly effective Forest Service concerning alternative methodologies. information environment, the many individual efforts currently taking place must be brought 2. Select a single, structured, business-driven together. The Vision and Principles of the Frame- standard methodology, and communicate work are vital, but not sufficient to bring systems the selection to all employees. and data bases into the shared information envi- ronment. A single, common methodology will Application development managers and technical provide the processes and tools that will help staff will: bring this about. As discovered by other organi- 1. Learn (e.g., via training) the standard zations, these processes and tools facilitate com- methodology selected. munication of ideas and coordination of develop- ment across the functional and organizational 2. Determine what, if any, changes to make boundaries of the agency. These processes bring

6 3. Reassess and coalesce ongoing pilot crucial in keeping the organization informed. The project efforts. CIO and Advisory Group will assess and assign implementation project priorities, with conflict 4. Use the new methodology in new projects resolution by Chief and Staff. and migrating existing ones. Implementation will depend upon individuals throughout the agency. They represent the collec- tive resources needed to achieve the new infor- mation environment. Additionally, as the Forest Service finds its traditional organizational bound- aries including more external groups, individuals The CIO, with the help of the Information must be utilized who can address this perspective Management Advisory Group, develops as well. Chief and Staff approve the implementa- and communicates an implementation plan tion plan. for involving interdisciplinary ad hoc teams to move the agency to the desired Informa- Next Steps: tion Management environment. The plan addresses outputs such as: The CIO and Information Management Advisory Group will: ● Models of Forest Service programs, func- 1 tions, processes, and data 1. Develop the implementation plan and identify interdisciplinary teams needed to ● Shared data bases implement the selected methodology.

● Procedure to integrate data 2. Develop a Process to maintain communi- cations with all employees about imple- ● Procedure to maintain data bases mentation progress.

● Migration paths for local or functional efforts

● Criteria for determining migration priori- ties Managers and technical staff who are ● Procedures for setting standards sponsors and stewards of all application and efforts participate in implementing the Information Manage- Discussion: ment Framework, and migrate their sys- tems into the new environment, consistent This strategy will involve different organiza- with the migration priorities they helped tional perspectives in developing a plan. The plan develop. will be instrumental in ensuring that the adopted methodology serves the business of the Forest Service while defining products which will map Discussion: the way to the new information environment. Since plan implementation will be a long-term, This strategy focuses on the sponsors and dynamic process, ongoing will be stewards of existing applications and their com-

7 mitment to the Service-wide information manage- ment Vision, Principles, and Strategies. These people, who have the skills and funds to do the actual work, will be the ones who move specific The CIO ensures that all information tech- applications to the shared information environ- nology acquisitions, such as Project 615, ment. Their attitude, participation, and long-term support the Information Management support are essential to successful implementa- Framework. tion. For example, F&AM recently supported P&CR’s effort to develop an Integrated Personnel Discussion: System, recognizing that this effort would sup- port future development of an F&AM Redcard Acquisitions of new information technologies application, which in turn will support other are an integral, enabling part of the desired Forest Forest Service certification processes, such as Service information management environment. silviculture, engineering construction, and blast- For example, the planned Project 615 acquisition ing. includes telecommunications, hardware, and Application sponsors and stewards will partici- to expand capacity and provide graphic pate in prioritizing projects. They recognize that capability (such as GIS). Information technology not all systems can be enhanced at once, but that acquisitions to date have placed the Forest Service we need to move forward to achieve the benefits in an excellent position to proceed with the new of shared information. Further investments in Framework by providing a level of systems and applications which do not fit the new information telecommunications integration capability un- environment should be minimized. available to most other complex organizations. These evoking technologies must continuously Next Steps: be incorporated into Forest Service information management. Sponsors and stewards of existing efforts will: Information technology, within the Framework will focus on enabling the internal and external 1. Participate on the Information Manage- sharing of expertise, work, decision-making respon- ment Advisory Group and interdiscipli- sibility, and accountability. Networking capability is nary ad hoc teams. essential for sharing by complex organizations with diversified external partners and audiences. Project 2. Begin to identify their priorities for inte- 615 provides an opportunity to demonstrate how grated development or migration. information technology will facilitate sharing within 3. Formulate a plan for their contributions to the Forest Service Information Management Frame- the corporate effort, including identifying work. resources and partners for integration Establishment of the Chief Information Officer efforts. (CIO), and supporting mechanisms, provides the vehicle for early and continuing assurance that 4. Inform their staffs about the Information Project 615 and other future information technol- Management Framework. ogy acquisitions are conducted as enabling parts of the Framework. A primary responsibility of 5. Demonstrate a commitment to make the CIO is to assure that all information technol- ongoing contributions of resources to ogy acquisitions support the new Information achieve long-term direct benefits. Management Framework, and that this support is communicated.

8 mitment to the Service-wide information manage- ment Vision, Principles, and Strategies. These people, who have the skills and funds to do the actual work, will be the ones who move specific The CIO ensures that all information tech- applications to the shared information environ- nology acquisitions, such as Project 615, ment. Their attitude, participation, and long-term support the Information Management support are essential to successful implementa- Framework. tion. For example, F&AM recently supported P&CR’s effort to develop an Integrated Personnel Discussion: System, recognizing that this effort would sup- port future development of an F&AM Redcard Acquisitions of new information technologies application, which in turn will support other are an integral, enabling part of the desired Forest Forest Service certification processes, such as Service information management environment. silviculture, engineering construction, and blast- For example, the planned Project 615 acquisition ing. includes telecommunications, hardware, and Application sponsors and stewards will partici- software to expand capacity and provide graphic pate in prioritizing projects. They recognize that capability (such as GIS). Information technology not all systems can be enhanced at once, but that acquisitions to date have placed the Forest Service we need to move forward to achieve the benefits in an excellent position to proceed with the new of shared information. Further investments in Framework by providing a level of systems and applications which do not fit the new information telecommunications integration capability un- environment should be minimized. available to most other complex organizations. These evolving technologies must continuously Next Steps: be incorporated into Forest Service information management. Sponsors and stewards of existing efforts will: Information technology, within the Framework will focus on enabling the internal and external 1. Participate on the Information Manage- sharing of expertise, work, decision-making respon- ment Advisory Group and interdiscipli- sibility, and accountability. Networking capability is nary ad hoc teams. essential for sharing by complex organizations with diversified external partners and audiences. Project 2. Begin to identify their priorities for inte- 615 provides an opportunity to demonstrate how grated development or migration. information technology will facilitate sharing within 3. Formulate a plan for their contributions to the Forest Service Information Management Frame- the corporate effort, including identfying work resources and partners for integration Establishment of the Chief Information Officer efforts. (CIO), and supporting mechanisms, provides the vehicle for early and continuing assurance that 4. Inform their staffs about the Information Project 615 and other future information technol- Management Framework. ogy acquisitions are conducted as enabling parts of the Framework. A primary responsibility of 5. Demonstrate a commitment to make the CIO is to assure that all information technol- ongoing contributions of resources to ogy acquisitions support the new Information achieve long-term direct benefits. Management Framework, and that this support is communicated.

8 Next Steps: To facilitate this cultural/behavioral change, we will develop and deliver a three-tiered train- The CIO and Advisory Group will: ing and plan. First, concepts contained 1. Develop plans and procedures, using the in the Information Management Framework must interdisciplinary team approach, to assure be clearly communicated to all employees and that all new information technologies strongly endorsed by line and staff managers at support the Information Management all levels of the organization. This awareness is Framework. critical to achieving organizational understand- ing, support, and involvement, and will be a key 2. Publish a document for all Forest Service to successful implementation. employees to explain how Project 615 will Second, we will need to develop new applica- facilitate sharing within the Information tions or migrate existing applications into the new Management Framework. information environment using technical skills that may not currently exist insufficient numbers within the organization. This need for new skills does not translate to a need for new people, however. Rather, a training program must be The CIO ensures that a developed to provide these new skills within the and training plan is developed that contains existing workforce. the following components: Finally, implementation of the Information Management Framework will be a dynamic ● Orientation for all Forest Service employ- process requiring a continuing effort to reinforce ees to the Information Management our Vision, Ethic, and Principles. Sharing Framework progress and successes will be a key component of the education process, as well as a way to ● Technical and user training needed to implement the Information Management demonstrate that adherence to the Information Framework Management Framework is encouraged and rewarded. ● Ongoing communication to all employees, including progress reports and success Next Steps: stories, to reinforce the Information Man- agement Framework. The Chief will distribute the Information Management Task Force Report throughout Discussion: the organization.

Acceptance of the Information Management The CIO will: Framework to the organization that it is time to change the way we do business. This 1. Develop an orientation/education module means that, to the maximum extent possible, data to disseminate to all Forest Service em- will be generated as a natural outcome of Forest ployees, to increase their awareness of the Service business processes and operations. Addi- Information Management Vision, Ethic, tionally, the organization must commit to func- Principles, and Strategies. tion in a shared data environment that makes information available to employees and processes as needed.

9 2. Identify skills needed Forest Service-wide Our current information environment consists to implement the Information Manage- of hundreds of development efforts (applications ment Framework. systems development, data bases, standards, etc.) that, because of their functional development, are 3. Assess skills within the organization. not well linked. The result is an information environment characterized by 4. Design or obtain from external sources any needed training programs. . redundant data,

● inconsistent, incompatible information, SUPPORTING DISCUSSIONS ● inaccurate information, What is Information Management? ● duplication with high retrieval and analy- sis costs,

● systems that are unable to share data electronically, and

. “islands” of information in unconnected Information is data that has been processed data bases and systems. and interpreted. This is a much more complex Consequently, Forest Service information is concept than is often simplistically diagramed frequently seen as not effectively organized. We as a broad based pyramid of ground level data frequently ask field units for information they feeding up through the organization to a focused, don’t have or that is kept indifferent formats at key bit of data at the top (fig. 2). The mix of data different locations. In addition to the significant and information at the top differs significantly work impact, this method of collecting data from that at the bottom; external information includes a high risk of inaccuracy, affecting both exchanged grows in significance; a majority of decisions made and our credibility with those to data evolves to information, which may in turn whom information is provided. In turn, this is become data for a subsequent generation of information. We commonly recognize natural (water, range, timber, etc.) and capital (campgrounds, offices, roads, etc.) resources. However, like cultural and human resources, we frequently do not focus on information as a resource, and consequently do not manage it as a resource. There are two components to information management (fig. 3): the overall Information Management Framework, or approach to plan- ning, developing, or acquiring information systems, followed by implementation plans for each specific information technology (such as GIS, integrated data bases, or telecommunications).

The concept of an integrated information system Figure 2.—information Is data that has been processed and is important to both levels. interpreted.

10 range from totally unique structures developed by an organization, to adaptation of broad sys- tems-industry outlines (such as Zachman’s Ma- trix), to adoption of a specific commercial process (such as the CASE*Method). Clearly, a single method must be selected and standardized across the organization. Information systems could be integrated to a limited extent on a system-by-system basis, identifying other users and sharing information for each functional project. However, total Forest Service efforts can best be supported if the infor- mation models have been integrated with models of the various Forest Service programs, processes, and functions. Integrating external information exchange will be a major challenge from several aspects. Exter- nal partners typically have their own corporate data definitions, quite probably different from that most comfortable to the Forest Service. We will need to balance Forest Service convenience against the greater good of sharing with others. External information exchange is typically more complex and less tangible than our more basic resource data (data used by State and Private and International Forestry, for example, Figure 3.—lnformatlon Management components. as opposed to National Forest Systems data.) sometimes perceived as a major flaw of a decen- tralized organization. Information management provides a structure and process through which separate data bases and information systems can be integrated so that information is only entered and maintained at one point, but is shared and available to all users for numerous purposes (fig. 4). This requires agreement on shared data definitions by all users (see also section on Standardization). A critical concept here is shared data: data shared between data bases, not a single, organiza- tion-wide data base. There is flexibility in the individual systems to keep information beyond Applicattion that which is shared. I Achieving this integrated, shared information requires an organized, structured methodology, Figure 4.—lnformatlon management provides a system and structure to Integrate separate databases and Information also referred to as information engineering or systems. . Various methodologies 11 Much external need for information is upward To most effectively integrate our information reporting, and this often takes a specialized systems to support the business plans, we will format difficult to anticipate when identifying concurrently need to build an integrated model of data standards. the business of the Forest Service. An integrated External access to the Forest Service integrated information model could be developed solely for information system will be a controversial issue. the purpose of integrating information, or we can We have many partners and users of Forest also look beyond information management to Service information, and we can build these additional, broader benefits of an integrated relationships as well as our own efficiency by framework. providing external access. Conversely, there is a Despite our functional programs and organiza- significant concern that data could be taken and tion, the Forest Service strives for an interdiscipli- used out of context. nary, integrated approach to projects. Institution- alizing an integrated information model within a standard information management methodology Modeling provides the ideal framework for the interdisci- plinary approach. For information to best support the mission Imagine a Wildlife Biologist, Hydrologist, and business of the organization, information Forester and Engineer coming to the interdiscipli- management must be driven by Forest Service nary table to plan a project, each with a functional business strategies and the agency’s desired data base. Much time will be spent clarifying data future condition. The Forest Service has a strate- requirements and definitions relative to the gic plan, the RPA Program, which articulates project at hand. In contrast, imagine these same desired future conditions, agency roles, and specialists coming to the table with shared, inte- strategies to guide the movement of the organiza- grated information already available. They could tion to its desired state. immediately begin addressing the project issues In addition to RPA, there are strategic plans for because they already have common agreement on many organizational units, programs, and func- the data. tions within the organization. These individual The Forest Service standard methodology strategic plans can be viewed as “tiering” to the would be used to begin modeling major pro- RPA Program to provide more specific guidance cesses that support our mission. Modeling would to appropriate organizational units, programs, or proceed to the next level of broad, high-level functions. Supplementing these strategic plans are processes that support the first level, and soon the Plans of individual Na- down the corporate structure to the numerous tional Forests and the 5-Year Plans of Research specific “doing” jobs of the Forest Service. Work Units, for example, which help define the Information needs and common information business of the organization. These plans outline, users would be identified as the basis for stan- for each respective unit, a course of action de- dardizing information and integrating informa- signed to move that unit to its desired future tion systems that then support the integrated condition in support of the overall Forest Service Forest Service programs, processes, and plans. Mission. This process may even change where and by However, we presently pursue these business whom different information is maintained. plans in a functional, programmatic, rather than integrated, manner. This is driven by tradition, functional budgets, and functional organization. Our current information systems also reflect this functional approach.

12 Standardization Benefits and Costs

Does integrated information management The desired information management environ- mean a single data with all ment will provide the following benefits over data standardized? No! Only specific data or current processes: information that is commonly understood and • Field people will have opportunity to be widely used over time will be standardized and involved in, and informed about, informa- shared. (Sharing between data bases is accom- tion technology plans, acquisitions, and plished through a relational data base manager, development. such as ORACLE.) ‘Widely used means that a particular piece of information is used in many ● Shared data in an integrated information data systems, possibly across functions, locations, environment will provide the efficiencies and organizational levels, or with partners and of entering data only once close to the customers. Standardized and shared information source, and being available for all users. must be persistent because of the impracticality of Further efficiencies will be gained in not frequently changing definitions, and the need to having to resolve similar but inconsis- maintain consistency in use and reporting. The tently defined data for aggregation and more basic the data (inventory, personnel records, further use. business processes) the larger the proportion of standardized and shared information. Con- . The concept of shared information recog- versely, the more specialized, interpretive, or nizes the need for, and provides the external the information system, the less the flexibility for, additional specialized proportion of standardized, shared information. information and . Beyond the standardized, shared information, each data system would continue to have tradi- ● The Information Management Framework tional flexibility for other data needs. includes a process for prioritizing the Standardizing and sharing information will migration of existing functional data constitute a cultural change, however, from our systems to an integrated environment to traditional approach of individually defining minimize impact on programs and other owning and managing information. In the inte- system developments. grated information environment, we will become custodians of information, rather than controllers • The integrated, shared information envi- er owners. For some, this maybe perceived as a ronment will improve the consistency, loss of power. quality, and timeliness of response to Identifying data to be shared and standardiz- external requests for information. In turn, ing that data will be neither a top-down or bot- this will present the Forest Service as a tom-up effort, but a Forest Service effort, visible to well-managed organization with central- all. We will have to work with other users and the ized information availability, while pre- collectors of the shared data to agree on the best serving the benefit and spirit of a decen- Forest Service definition. We will have to build tralized organization. quality into the applications, and learn to the quality of shared data.

— • The expanded graphical information tangible benefits. These up-front investments will capability, and links between graphic and include management time, and staffing teams to textual information, will enhance inte- develop information management implementa- grated forest, program, and project plan- tion plans. Also, early progress will be slow ning and communication of these plans to because of and the lack of an existing our partners, users, and publics. structure. There will be the cost of communicat- ing the Framework, and training employees in • The integrated, shared information envi- the use and application of new methods and ronment will promote data consistency technologies. There will be starts and stops, and availability for sound and deliberate duplication, mistakes, and lots of learning. decisions, and for generating ideas. Progress will become more rapid and efficient as development builds on existing structure, shared ● Integrating information with Forest Ser- users are defined, standards are agreed to, barri- vice programs, processes, and plans will ers are overcome, and corporate understanding improve the information support for the grows. Equal sharing in funding early phases day-today implementation of such activi- will, for many, be investments in future benefits. ties. Additionally, There will be some cost in duplication of efforts and coordination will benefit from the as some employees hang onto traditional infor- exercise of modeling the processes and mation systems before developing understanding identifying shared users for structuring and comfort with the new approach. Some minor the information. duplication cost may result during the migration from existing systems to the integrated environ- . Integrating information will promote and ment, depending on the sponsors’ planning, facilitate multi-functional, multi-cultural, involvement, and support. interdisciplinary, teamwork-oriented dialog within the Forest Service. Ongoing Information Management ● Developing the shared information envi- Developments ronment will help employees at all levels to better understand the need for, and use The Forest Service has a good track record in of, information they deal with. information management, albeit not as integrated or visible as may have been desired. • Properly developed and applied stan- The USDA National Computer Centers at Fort dards will free development efforts and Collins, CO and Kansas City, MO, the National creativity for more beneficial information Finance Center in New Orleans, LA, and personal uses. are widely used for business func- The costs of moving to the new information tions, special applications, project work, and environment will primarily be offset by redirect- external networking. It would be hard to imagine ing investment from developing, enhancing, and functioning now without the Service-wide Data maintaining functional systems, to investing in a General system. shared, integrated environment. There may be a While we were contracting for the Data Gen- real increase in cost to achieve the even greater eral, a 1984 national task force recognized addi- benefits of graphical information capability. tional needs, assessed , and There will be the appearance of additional cost laid the groundwork for Project 615. Project 615 to some because of the need to make a major specifically addresses a Service-wide system with multi-year investment before achieving the graphics and relational data base management

14 capability, and capacity for GIS and integrated information management. Cost/time Amount of to develop information Pilot learning efforts in the use of GIS, involv- new delivered application to user at ing a variety of hardware and software, have fixed 1 been underway in various Regions and Forests. A budget ‘Number of ‘Number of National GIS Plan was developed in 1988, and a shared, shared, lntegratable, integratable, Data Structure and Data Dictionary have been subject-oriented sub ject-oriented databases databases published. A 5-year effort to digitize the basic implemented implemented physical features for GIS (terrain, streams, owner- ship, transportation, etc.) will be completed as the Figure 5.—The Data Synergy Effect of information management. national GIS capability becomes available. ORACLE, a relational database management earliest and greatest good to the doing work of system, was procured to meet USDA standards the Forest Service. Models must be realistic, and to begin evolution to a shared information visible, and accepted by most employees. Projects environment. Several pilot integrated information must remain focused so they are do-able and get efforts have begun using ORACLE. These include done, rather than growing into dinosaurs that bog the Integrated Personnel System Project (previ- down and die. The models, selection sequence, ously known as the People Data Base), the Re- visible accomplishment and helpfulness of results sources Management Information Project (RMIP), will be major determinants in organizational and the District Production Model. These efforts attitude and support. have used the CASE*Method and other method- Delivering the hardware and software to meet ologies, and included versions of a Forest Service timely, user-friendly expectations, and providing information model. user taining will similarly determine implemen- Actual “road maps” for implementing these tation attitudes, support, and success. efforts are still evolving, and, within the Frame- The specific implementation plan will be work, will include field involvement. developed by the CIO in conjunction with the Information Management Advisory Group. This process will begin with the selection of a standard Implementation and Commitment methodology (fig. 6). With this methodology, an interdisciplinary team will begin modeling the Moving to a shared-data, integrated informa- Forest Service programs, processes, and plans to tion environment will take a well thought out create a structure of possible implementing plan. Integration is not something that takes place projects. Concurrently, the CIO and Advisory across all systems atone time. Rather, it must Group will assess alternative annual funding and proceed one or a few projects at a time. Maintain- staffing level capabilities (including contracting) ing interest and support will be difficult. There to achieve implementation within various time will be little structure or experience for early frames, and agree on an initial 3-year level to projects. Early projects will be slow, learning establish out-year programming. Also concur- processes, with many iterations and false starts. rently, applications sponsors would assess their But the journey will be as important as the accom- programs and applications development priori- plishments. Once the first several projects have ties and provide these to the CIO, along with their been implemented, progress and efficiency will interest in further involvement. increase rapidly (fig. 5). The CIO and Advisory Group will then assess Selection and prioritization of projects will be the possible projects, and prioritize a 3-year keys to success on several fronts. There should be schedule approved by Chief and Staff. Projects, a natural sequence of projects that produce the

15 f

Planning Year First Year

Sponsors and stewards Sponsors and stewards review program priorities update priorities and update priorities and and identify involvement continue support. continue support. Proceed with unstructured Incorporate systems as development only within the developed. Principles. Proceed with unstructured development only within the Principles.

CIO & Advisory Group CIO & Advisory Group CIO & Advisory Group agree on Program levels, - establish ad-hoc project establish ad-hoc project and 3-year project schedule. teams & monitor progress. teams & monitor progress. Update 3-year schedule.

CIO initiates Service-wide CIO supports and orientation. coordinates Teams. Provides training and ongoing communications.

Ad-hoc Team models Ad-hoc Teams proceed business and possible with project developmenk array of projects.

J Planning Year First Year Following Years -

Figure 6.--Standard methodology to implement shared information.

priorities, and out-year funding would then be applications needs relative to the 3-year implementa- reviewed and updated annually. The CIO would tion plan and schedule. Sponsors would proceed lead and facilitate implementation of the first- independently with applications development year plan. With the Advisory Group, the CIO outside the structured implementation only after would identify and train individual interdiscipli- careful consideration and then within the shared nary teams to proceed with project development, information principles. For example, they would first and they would monitor team progress. The CIO consider use of Service-wide technologies, identify would coordinate development between the shared information users, and seek common defini- teams, and keep the whole agency informed of tions with shared users. progress. Annually, sponsors would update their appli- Sponsors and stewads would monitor team cations development priorities, and re-affirm development, incorporating results into their pro- their support and involvement with the national grams as appropriate. They would assess any other efforts.

16 Roles and Responsibilities Group, the CIO proposes policy, sets priorities, plans and supports interdisciplinary involve- All employees have a responsibility to under- ment, and coordinates decision-making necessary stand the Forest Service Information Management to achieve the integrated information manage- Framework, and to track and be a part of imple- ment environment. The CIO plans and coordi- mentation of the new information environment. nates information, communications, and training Applications stewards and information specialists across the agency to keep employees current with will work together to integrate information needs implementation and new technologies. The CIO with Forest Service program needs. Particularly, represents Forest Service information manage- each of us needs to consciously, positively prac- ment with the USDA Office of Information Re- tice the Information Management Ethic. source Management and other external interests Additionally, line and staff officers must set The Information Management Advisory Group goals for achieving the shared information man- provides a high-level, interdisciplinary sounding agement environment, including budgeting time board and support group to the CIO for informa and funds for implementation. They participate tion management policies, standards, priorities, in priority setting and implementation, and funding resources, and resolution of user issues. support employee participation. They create and They coordinate plans for development, acquisi- maintain a positive, supportive environment for tion, and application of new technologies. They the Principles of integrated information manage- sponsor and support conceptual business and ment, including communications and training. information models and methodology. They The C1O represents information resources at approve, adopt, and monitor implementation the Forest Service decision-making level, main- plans. They ensure interdisciplinary participation taining ongoing Chief and Staff involvement and at field and WO levels. The Advisory Group feedback in implementing the shared information provides the positive, enthusiastic attitude visible environment and anticipating new technologies. throughout the organization that encourages and The CIO has leadership responsibility for infor- gives credibility to the information management mation management functions. With the assis- effort. tance of the Information Management Advisory