oversight

Navy Integrated Command/Management Information System (NAICOM/MIS)

Published by the Government Accountability Office on 1971-09-10.

Below is a raw (and likely hideous) rendition of the original report. (PDF)

ON APPROPRIATIONS                \
HOUSE OF REPRESENTATIVE




The Navy Integrated
Command/Management      Information
System (NAICOM /M IS) B-763o74




BY THE COMPTROLLER GENERAL
OF THE UNITED STATES
                                COMPTROLLER     GENERAL     OF      THE       UNITED    STATES
                                              WASHINGTON.    O.C.         20548




         B-163074

Cl       Dear Mr.     Chairman:
e / --
                   By letter     dated September        24, 1969, you asked us to
         maintain       a continuing      effort    in the area of development,           in-
         stall‘ition,        and operation       of automatic      data proce-ssi-n,g sys-
         telgs.       You expressed     an interex-ifi--the-development             of systems,
         such as the Air Force Advanced Logistics                     System (ALS-X),     and
         the Navy Integrated           Command/Management          Information    System
          (NAICOM/MIS) . The first             system mentioned         was the subject     of
         an earlier        report.     This report        concerns    our review    of
         NAICOM/MIS.

                 NAICOM/MIS is described            as a conceptual           framework    and a
         general      approach     for progessively          improving      and changing       the
         existing      information       and data systems under the cognizance                    of
         the Chief of Naval Operations               until      they evolve by planned
         development        into a more economical,             integrated,       and effective
         total    information        system.    The concept          envisions      that ulti-
         mately     the total      information      system will         be a network      of in-
         tegrated      information       and functional         systems.        They will    be
         interconnected         by communications          for the exchange of data and
         that will       be designed      to meet the total           information       and data
         needs of the Chief of Naval Operations                      and each of his sub-
         ordinate      commanders.

                 Our review    showed that after          NAICOM/MIS was established
         as a Navy program in November 1968, progress                      toward its de-
         velopment     has been slow, partly           because the Chief of Naval
         Operations     did not assign      a full-time         staff    to its develop-
         ment until     October    1970.    Therefore        we were unable to eval-
         uate the effectiveness          of the concept or the general                approach
         to achievement       of an effective,         integrated,       management in-
         formation     system.     We found that the Information                 Systems
         Division,     which is responsible          for developing          NAICOM/MIS,    had
         not created      a master plan for it and was not contemplating
         the creation      of one within      the foreseeable          future.       We noted
         that the need for a master plan was emphasized                       by the study
         committee     which had conceived         the concept        and by the Chief
         of Naval Operations.




                                        50 TH ANNIVERSARY                   1921-      1971
    B-163074



              We believe      that    an approved       master       plan is needed           to
    define      the desired        system structure          in more detail            and to
    provide       a model for the automated               systems        that will      make up
    NAI COM/MI S . Such a plan seems essential                         for ensuring         com-
    patibility          of systems      with     each other      and with        the approved
    concept,        for ensuring        integration       or interface           of systems
    where appropriate,             and for mitigating            the necessity           for ex-
    tensive       revisions      to systems         and procedures          that    are likely
    to result         when systems        are developed        independently           of an
    overall       plan.     You may wish to explore                this     need with       the
    Secretary         of the Navy.

            Our review       further        showed that          NAICOM/MIS       was to be de-
    veloped      in consonance          with     a Department         of the Navy long-                 B
    range plan        to integrate          the information           systems        of the Navy
    and Marine       Corps into         a Department           of the Navy management               in-
    formation      system.          We were informed,             however,       that   the long-
    range     plan was not being              pursued      because      (1) top management
    would not support            it,    (2) there         was a lack of qualified               staff-
     ing,   (3) management           was unable         to define       its    total    information
    needs,      and (4) the consensus                of opinion       within       the Navy was
    that    the Navy was not ready                 for    such finite        planning.         There -
    fore    it appears       that      NAICOM/MIS         will    now be developed           inde-
    pendent      of systems         not under        the cognizance          of the Chief          of
    Naval     Operations.

            We believe      that    it would      be desirable        for    the develop-
    ment of NAICOM/MIS,            as well   as systems        not under        the cogni-
    zance of the Chief           of Naval    Operations,         to be guided         by a
    Department       of the Navy long-range             plan.      Such a plan would
    help ensure        that   the Navy’s      information        and data systems
    would     (1) be compatible        with     each other,        (2) be standardized,
    integrated,        or interfaced       where appropriate,             and (3) serve
    the information         and data needs of all             Navy managers         includ-
    ing those within          the Office      of the Secretary            of the Navy.

            Therefore        the Secretary           of the Navy should         reevaluate
    the Department’s            existing        long-range      plan  to determine
/   whether      it is still          applicable        to the Navy’s     systems       de-
    velopment       efforts.          In the event         that   the Secretary        concludes

                                                      2
B-163074



that   the plan no longer         applies        or   is unworkable,     we believe
that   a new long-range        plan,    which        would    include the Depart-
ment’s    goals   and objectives         for     its    information   and data sys-
tems, should      be considered.           You     may wish to discuss      this
matter    with  the Secretary        of the        Navy.

       These    matters     are   discussed       in      more    detail      in   the   report.

          We did not request       formal    comments on this         report             from
the Department         of the Navy.        We plan     to make no further                  dis-
tribution       of this   report     unless   copies      are specifically                 re-
quested,       and then we shall        make distribution         only after               your
agreement       has been obtained         or public      announcement      has           been
made by you concerning           the contents        of the report.

                                              Sincerely          yours,
                                                                           ‘:‘w



                                   %MPIE Comptroller   General
                                         of the United   States

The Honorable    George H. blahon
Chairman,    Committee   on Appropriations
House of Representatives
                THE NAVY INTEGRATED COMMAND/MANAGEMENT

                      INFORMATION      SYSTEM (NAICOM/MIS)

        The Chairman,      Committee    on Appropriations,           House of Rep-
resentatives,       by letter    dated September           24, 1969 (see app. II),
asked the General Accounting            Office      to maintain      a continuing      ef-
fort    in the area of development,            installation,        and operation      of
automatic      data processing       (ADP) systems.           In that letter      the
Chairman expressed         an interest     in the development           of systems,
such as the Air Force Advanced Logistics                     System (ALS-X),      and the
Navy Integrated       Command/Management          Information       System
 (NAICOM/MIS).       The first     system mentioned           was the subject       of an
earlier     report.    This report      concerns       our review     of NAICOM/MIS.

DESCRIPTION

       NAICOM/MIS is a conceptual        framework     and a general      approach
for progressively       improving  and changing      the existing     command in-
formation    systems1     of the Chief of Naval Operations,         the command
information     systems of his subordinate         commands, and a series          of
major functional       subsystems  until     they evolve by planned        develop-
ment into a more economical,         integrated,     and effective      total    in-
formation    system.

         The concept       envisions      that ultimately        the total    information
system will        be a network        of integrated      command/management         infor-
mation     systems designed          to meet the total         information      and data
needs of each commander.                 These will     be interconnected         by com-
munications        so data can be interchanged.                They   will  also    be ver-
tically     integrated       with major functional            subsystems,     such as fi-
nancial,      logistical,        and personnel       systems.       It is intended       that
the system will           support    the management needs and decisionmaking
activities       of the Chief of Naval Operations                  and each subordinate
command and also satisfy               that part of the information             needs of
higher     authorities.



'A generic     term which applies        to all Navy information          systems
  including    both command and control          systems and management in-
  formation    systems.      Command information         systems include       the
  facilities,     personnel,    procedures,      doctrine,     equipment,     and
  communications      that provide     information       and data to support
  command and management functions            and decisions.
EVENTS LEADING TO DEVELOPMENT OF THE CONCEPT

        The Department           of the Navy, as a result             of a review        con-
ducted in 1962 and 1963, identified                    significant         opportunities
for improving          its management by exploiting                the potential         of
rapidly      increasing        computer capabilities            and management
science      techniques.          The Department       recognized        that this po-
tential     made it feasible           to improve and integrate              management
systems to provide             data and information           keyed to basic Navy
missions       and objectives         and thus to-establish            the basis for
more effective           operations      and better      decisions       at all levels.
The Department           recognized      also that exploiting            this potential
necessitated         integrating       requirements       without      regard      to orga-
nizational        boundaries,       integrating     systems design,            and stan-
dardizing       data elements         and programming         languages;       this would
permit     elimination         of duplicate     input,      system processing,            and
output.

        In 1964 the Secretary           of the Navy took certain           significant
implementing       steps.       Among these steps was the establishment                of
the position       of Special       Assistant   to the Secretary         of the Navy
as a civilian        executive      on an organizational       par with the As-
sistant     Secretaries        of the Navy.     This position        was charged
with    (1) improving        the management information           provided      to the
Secretary     of the Navy and (2) initiating               and directing        steps
to control,      improve,       and integrate     information       and data systems,
including     the automatic         data processing      support.

        In 1966 the Secretary       of the Navy, the Chief of Naval Op-
erations,     and the Commandant of the Marine Corps expressed                 per-
sonal interest      in further   accelerating      actions     to exploit    the
potential     of automated management systems.             Also at that time
the President     and the Secretary        of Defense issued new policies
designed    to increase     the efficiency     and effectiveness        of the
management of data systems and computers.

       Because of this increased         emphasis,   a comprehensive           study
of the Navy's      data systems and computer        policies,      procedures,
and objectives      was made by the Special        Assistant     to the Secre-
tary of the Navy and his staff.            In February       1967 the Secretary
of the Navy, as a result         of this   study,   announced implementation
of a long-range      plan for orderly      improvement       of computer-based
information     systems and automatic        data processing       capabilities
within    a departmental     master framework.       The Secretary         also di-
rected     that a task force of representatives            of major Navy com-
mands and offices        be formed to make recommendations            for its
development.

                                            2
        The task force,    which deliberated       between February      and
July    1967, determined    that one of the major initial          require-
ments which had to be fulfilled           was the establishment       of a con-
ceptual    base from which to build         or a target   for Navy-wide      sys-
terns planning    efforts.     This became known as the Depar+ment             of
:-he Navy Management Information          and Control    System (DONMICS)
concept --a long-range      planning     effort  for the integration        of
the hundreds of information          systems in the Navy and Marine Corps.

      The Secretary           of the Navy promulgated   the DONblICS concept
Navy-wide  on July           16, 1968.   DONMICS was described  as follows:

       "The DONMICS is conceptualized                           as an integrated          in-
       formation         system which will                have as major subsystems
       the master information                   systems of the Chief of Naval
       Operations,           the Commandant of the Marine Corps, the
       Chief of Naval Research,                    the ,Comptroller             of the
       Navy, and the Director,                    Civilian         Manpower Xanage-
       ment.       It includes            any future          information        systems
       of SECNAV, but is intended                       to serve the needs of
       managers and commanders at all levels                               of the Depart-
       ment of the Navy organization.                           *** This Concept ***
       provides        for the linking             of many geographically                 dis-
       persed data bases through                     a system of equipment,
       communications,               languages       and procedures.              Certain
       of these systems will                   also serve as 'directors'                  to
       assist      users in locating               other        information       systems
       which correspond                with their         needs for information                at
       any given time and which cannot be satisfied                                   in their
       own system.              *** This system will                 constitute       a de-
       partmental          master framework,                incorporating          and inte-
        grating       within       its purview          Navy ADP systems that are
        designed        to meet specified               Department         of the Navy in-
        formation         and control          needs.         The *** Concept incor-
       porates        and stems from reasoning                      which leads to the
        conclusion         that a total           and adaptive           information         sys-
        tem is required              to accommodate              the changing       mix of
        information           requirements          in the Department              of the
        Navy.       It will        over a period            of time and through              ap-
        propriate         and necessary           discipline,           become an inte-
        grated,       or fully         linked,      system and will             permit     in-
        teraction         within       and between staffs.                 Ultimately        it
        will    provide         managers at all levels                  within     the De-
        partment        of the Navy, management information                            to sup-
        port the execution                 of their       responsibilities."



                                                 3
NAICOM/MIS      Study

        Following     the task force's      report    to the Secretary         of the
Navy on the development            of DONMICS, the Chief of Naval Opera-
tions    in December 1967 initiated           a study of systems under his
cognizance.         The purpose and objectives          of this     study were (1)
to identify        and resolve     problems   of interfacing        command and
control      systems,      communications   systems,     management systems,
and other automated           systems that were imposing          information     re-
quirements       on the Navy and (2) to develop            concepts     which would
lead to the development            of an integrated      command management in-
formation       system that would satisfy          the information       require-
ments levied        on the Chief of Naval Operations            by DONMICS and
the Worldwide        Military     Command and Control       System.

        The study was completed             in July 1968 by a committee           com-
prising    leading     representatives            of the Navy organizations        con-
cerned.      In conducting       the     study the committee        explored    the in-
formation      systems problems          facing      the Chief of Naval Opera-
tions,    system requirements,             policies,     and information     needs of
higher    authorities,       as well       as the information       system require-
ments of the Chief of Naval                Operations     and subordinates.

       In its report         the committee        stated      that the overall        basic
problem     facing       the Navy was a lack of integration                 of command
and control        systems and management systems which had resulted
in the underdevelopment              of ADP capabilities,           inadequate      and un-
timely    information,         uneconomical       use of resources,          duplication
of files,      and overlapping          information-reporting            requirements
on field      activities.         The committee        concluded      that the solu-
tion to this problem was the development                        of NAICOM/MIS which
would serve the individual                commander at each command level                and
which would include            features      for control        of both the design of
systems and the flow of information.

NAICOM/MIS      ESTABLISHED      AS A NAVY PROGRAM

       In September      1968 the Vice Chief of Naval Operations
fully    endorsed   the NAICOM/MIS objectives,           overall    concept,    and
plan to initiate       suitable      actions    to accomplish    the objectives.
In his endorsement        he stated       that the Navy recognized       that the
size of the task was enormous and that an evolutionary                     approach
which builds      on existing      systems was the only path to success.
He stated     also that,     despite      the size of the job, the Navy
could not afford       to delay a moment longer          in embarking      on a
program with well-defined            goals to improve      the communication
and exchange of information             throughout    the Navy.


                                            4
        In November 1968 the Chief of Naval Operations                       assigned
planning    responsibilities          within      his office      and to subordinate
commands.      He also prescribed            actions    for initiation         of a com-
prehensive     plan for overall           information      systems development
which,    when fully       developed,       was to be known as the Navy Inte-
grated    Command/Management          Information       System Master Plan.             In
making the assignments            he stated       that it was imperative           that a
current,    cohesive,        comprehensive,         and effective      overall     plan
for information        systems development            and operation      be estab-
lished    and maintained.

        The Information       Systems Division       within    the Office       of the
Chief of Naval Operations            was given the responsibility             for the
development       of a planning      system which was intended           to be the
principal      means for accomplishing           the evolutionary       development
of NAICOM/MIS.         The planning       system was to produce a series             of
information       system plans that were to be integrated                into a mas-
ter plan.        The master plan and its supporting              plans,    in turn,
were to be the primary           operating     tools  for the Division          to con-
trol    decisions     and direct     actions.

INITIAL  EFFORTS TO DEVELOP
NAICOM/MIS PROGRESSED SLOWLY

       Although    the Office    of Chief of Naval Operations         had taken
the position     that the Navy could not afford          to defer the de-
velopment     of NAICOM/MIS,     we found that initial      progress    toward
its development       had been slow.     The Information     Systems Divi-
sion--during     the period    of December 1968 through        September     1970,
about 22 months--did        not have a full-time      staff  working    on
NAICOM/MIS.      During this period,      however,    the Division     devel-
oped and promulgated        a planning   system and developed        a manage-
ment plan.

NAICOM/MIS      Planning     System

        The planning    system was implemented             in July 1969 to pro-
vide a planning      discipline     for improving          management of exist-
ing and planned      computer-based     information          systems and for in-
tegrating     those systems.

       The planning        system requires     each organization       involved
in the development,           operation,   or support    of systems to prepare
a detailed    system       development   plan in accordance        with a stan-
dardized   format.         These plans are used to (1) identify,             docu-
ment, and justify          system requirements,       (2) identify     resources
needed and to plan for         those resources,       (3) coordinate     system
development    efforts   to    effect   functional     and technical     intc-
gration,    and (4) notify       higher   echelons   of the planned dcvelop-
ment and operation     of     systems prior      to committing    resources.
A synopsis    of the data      required    in the plan is attached         as ap-
pendix   I.

       The planning      system initially       required      system development
plans for uniform        command/management        information      systems--sys-
tems common to two or more command&-and                  for uniform      functional
information      systems-- systems that meet the information                 and data
needs within      a functional      area--to    be reviewed       by the Informa-
tion Systems Division          and approved by the Chief of Naval Opera-
tions.      Plans for command/management           information      systems--sys-
tems that meet the total          information      and data needs of each
commander--were        to be reviewed       and approved     by the commander
immediately      senior    to the system proponent.

        The planning       system generated      a large number of detailed
system development          plans for review      by the Information    Systems
Division.       This work load, however,          proved to be beyond the
capabilities       of the Division,      and the planning       system subse-
quently      was modified.       This modification,      which is discussed
further      on page 8, reduced the number of plans and the detail
to be reviewed       by the Information         Systems Division.

NAICOM/MIS     Management     Plan

       The Information       Systems Division's       initial   objectives      in-
cluded< preparing      a plan for managing the development              of
NAICOM/MIS.      This task began in May 1970 and resulted                in a
draft   plan in July 1970.          The management plan summarized           the
NAICOM/MIS objectives         and established      goals and detailed        the
implementing     tasks necessary        to achieve    the objectives       and
goals.     It included     also an estimate       of the total      manpower re-
sources needed to complete           the tasks.     The plan,     in effect,
was to be the groundwork          for developing     the master plan.

       Approval   of the management plan          was held in abeyance for
3 months because of a pending change              of command within   the In-
formation    Systems Division.    We were         informed  that subsequently
the plan was not approved because it              was too broad and concep-
tual.




                                        6
REORGANIZATION OF THE
DEPARTMENT OF THE NAVY
ADP MANAGEMENT STRUCTURE

         Progress   toward the development     of NAICOM/MIS during
calendar      year 1970 was affected    by a reorganization        of the
Navy's ADP management structure.           Under this reorganization,
which occurred        in October 1970, the Assistant       Secretary      of
the Navy (Financial        Management)  became the Senior ADP Policy
Official      of the Department   of the Navy.     Also a Director,          De-
partment      of the Navy ADP Management,      was established       within
the Office       of Chief of Naval Operations.

        The Director        of Navy ADP Management is also the Director
of the Information           Systems Division.      In his dual capacity        he
is responsible          to the Senior ADP Policy       Official      for accom-
plishing      the Navy-wide        ADP program objectives         and actions,  and
for coordination           of all ADP matters   relating        to the Office   of
the Comptroller           of the Navy, the Office      of Naval Research,       the
Office     of Civilian       Manpower Management,      and other departmental
organizations         not under the command of the Chief of Naval Op-
erations      or the Commandant of the Marine Corps.                 The Comman-
dant of the Marine Corps is directly              responsible        to the Senior
ADP Policy       Official      for the Corps ADP program objectives.

       These responsibilities            before       the reorganization       were
those of the Special          Assistant      to the Secretary          of the Navy,
who was the Senior ADP Policy               Official,       and his Office      of In-
formation   Systems Planning            and Development.           The reorganiza-
tion made the Special          Assistant       to the Secretary          of the Navy
an advisory     position      under the Assistant            Secretary     of the
Navy (Financial        Management)       and abolished         its supporting      of-
fice.

      As a result     of the      reorganization,         the Information     Sys-
tems Division     also was      reorganized         and a NAICOM/MIS Planning
Branch was established          within     it.      The Branch was staffed
with 11 professionals,          the first       full-time    personnel    assigned
to NAICOM/MIS.

ACTIONS TAKEN SUBSEQUENT TO REORGANIZATION

      Since its establishment    in October  1970, the Planning
Branch has developed     a new management plan and has modified
the planning   system.



                                              7
        The new management plan was prepared            and approved    by the
Director,      Information    Systems Division,      in the latter     part of
October     1970.     The plan states    that the goals of the Planning
Branch are to develop         and implement     a planning   and management
process     for (1) effectively      developing     and operating    all in-
formation      systems under the Chief of Naval Operations             and (2)
acquiring      and operating    ADP equipment     that will    meet most ef-
fectively      the needs of the Chief of Naval Operations            and his
subordinate       commands.

        The plan also briefly       describes     the tasks that must be
accomplished      to achieve    these goals.        The tasks related              to
the first     goal include     such matters     as developing            criteria
for the validation       of ADP requirements,          criteria        for the re-
view of proposed      data systems,       and a description            of the or-
ganization     needed to implement        and maintain        the plan.           Most
of the tasks related         to the second goal involve              the activi-
ties of ADP installations          and include      the development             of
methods and performance         standards,     work-load        control       tech-
niques and policies,         and management and operational                  objec-
tives.     The latest    management plan differed             from the origi-
nal plan especially        in that it did not provide              for the de-
velopment     of a master plan.

        The planning      system,   which was intended    to          produce a
series     of information      system plans that were to              be integrated
into a master plan,          was modified    in March 1971.             Officials     of
the Planning       Branch advised      us that one of the           reasons for its
modification       was that they could not adequately                 review      such a
large number of detailed           systems plans.

       The modification          had the effect        of reducing     the number of
plans submitted        to that branch for review             and approval,      as well
as substantially         reducing      the amount of detail         required    to be
submitted.        Under the modified          system automated        data systems are
designated      as either       developmental       or operational.        An auto-
mated data system is developmental                  from the time the prelimi-
nary analysis       of need is conducted            and the system objectives
are approved until          the system is turned over to a command or
ADP installation         for operational         use.     An automated     data sys-
tem is operational          when it has been turned over to a command
or ADP installation           for operational         use, where such operation
requires     only routine        program maintenance         or modification      and
hardware     replacement       which does not involve           system redesign
or reprogramming.


                                          8
.
         .A developmental    system was further    defined    as major if
    (1) it required    expenditures    of $200,000 or more during      the
    budget year by any single       command or (2) if more than one com-
    mand within    the NAICOM/MIS structure     was effected.

          The Planning   Branch is now responsible         for reviewing
    only those systems designated         as major developmental       systems.
    In addition,    the detail  currently     required   to be submitted
    for a major developmental      system is limited       to modified     ver-
    sions of sections    1 and 5 of the standardized          format of the
    System Development     Plan previously      required   for submission.
     (See p. 5 and app. I.)

    COSTS OF NAICOM/MIS

            The costs of the Information            Systems Division       associated
    with implementing         NAICOM/MIS consist        primarily    of employee
    salaries.       From November 1968, when NAICOM/MIS was formally
    recognized      as an official       program,    until    the establishment       of
    the Planning       Branch in October        1970, a full-time       staff   was
    not assigned       to NAICOM/MIS,       and we were unable to establish
    either    the number of people or the amount of time spent during
    this period.         Based on the staffing        of 11 professionals         (see
    P* 7)s    the   salary    costs   of  the  Planning     Branch   would    amount
    to about $230,000 annually.              The Navy believes       that,    as prog-
    ress is made, additional           personnel     may be needed.        These re-
    quirements,      however,     have not been defined.           We have not de-
    termined     the costs of planning          and developing      NAICOM/MIS at
    the subordinate        commands.

    NEED FOR A MASTER PLAN

          At the time of our review,         the Information    Systems Divi-
    sion had not created     a master plan for developing           NAICOM/MIS
    and was not contemplating      the creation       of one within     the fore-
    seeable  future.   An official      within   the Planning     Branch in-
    formed us that such a plan was not being prepared               because it
    would not serve any useful       purpose.

           The need for a master plan had been emphasized          by the
    NAICOM/blIS study committee      in its report.    The committee
    stated    that one of the first    steps in developing    the system
    should be the preparation       of a master plan.     It envisioned
    that the plan would encompass the ADP requirements           of all
    commands within    NAICOM/MIS and would consolidate       and set
    forth   the actual  plans for mechanization     and/or   upgrading    of


                                            9
                                                                                                            ,




                                                                                                        .       ’


                                                                                                            L
their  systems.         It further       envisioned      that    the plan would                   in-
clude  a proposed         timetable      and a communications          supplement
which would     outline        the specific        communications      requirements.
The study group         concluded      that     a master    plan    or a blueprint
must be provided          toward    which all       commands could       work.

        The need for a plan was further                emphasized       by the Chief
of Naval        Operations      in November     1968.      In assigning       planning
responsibilities            he stated     that  it was imperative          that a cur-
rent,     cohesive,        comprehensive,      and effective       overall      plan for
information         systems     development     and operation       be established
and maintained.

        We believe       that     an approved         master     plan     is needed     to
define      the desired       structure        in more detail          and to provide         a
model for planning,             developing        and/or      improving,        and imple-
menting       the various       automated        systems      that will        make up
NAICOM/MIS.         Such a plan          seems essential           for    ensuring    compat-
ibility       of systems      with     each other        and with       the approved       con-
cept,     for ensuring        integration         or interface          of systems where
appropriate,        and for mitigating              the necessity           for extensive
revisions        to systems       and procedures           that are likely         to result
when systems        are developed           independently          of an overall        plan.

IMPACT     OF THE -REORGANIZATION
                     ~- .                        ON DONMICS

        A major   responsibility          of the Special      Assistant       to the
Secretary     of the Navy was to work toward               improving       and inte-
grating    the Navy’s      information         and data systems.         For this
purpose    the Secretary         of the Navy had established             the DONMICS
concept    as the Department’s            long-range    plan.      Because
NAICOM/MIS      was intended       to be a major       subsystem      of DONMICS,
we discussed       the current       status      of DONMICS with      the Special
Assistant     to the Secretary          of the Navy and other           Navy offi-
cials.

       We were informed                that     DONMICS--the            Department’s        long-
range    plan for         integrating           its     systems--is         not being       pursued
because      (1) top management                 would      not support          it,    (2) there
was a lack of qualified                   staffing,          (3) management           was unable
to define       its     total      information           needs,       and (4) the consensus
of opinion        within       the Navy was that                 the Department           was not                   .
ready    for such finite               planning.           Therefore        it appears        that,
since    the long-range              plan     originally           developed        by the Depart-
ment is not now being                  pursued,        NAICOM/MIS          will     be developed
independently           of systems          not under          the cognizance           of the
Chief    of Naval         Operations.
                                4%
                                                     10
CONCLUSIONS
-___-_-  -_I
         The development          of NAICOM/MIS         ilas not progressed         suffi-
ciently      to permit        us to evaluate         the effectiveness         of the
concept     or the general           approach      to the achievement          of an ef-
fective,       integrated        management      information        system.      Ncverthe-
less it is our opinion               that    the size and complexity             of the
task requires           a master     plan as emphasized            by the NAICOMIMIS
study committee            to guide     development         and to ensure      that all
systems under           the purview       of the Chief          of Naval   Operations
are planned,          developed,       and improved         within    the concepts         and
objectives         established.

        The Department       had recognized        that        the development      and
improvement      of its    information       and data          systems     should  be
guided     by a Navy-wide,        long-range     plan.           Therefore     the Navy
developed     such a plan        (DONMICS),     but it         is not now being       pur-
sued.

         We believe     that     it would be desirable           to guide         the de-
velopment       of NAICOM/MIS,          as well    as systems     not under          the
cognizance        of the Chief        of Naval     Operations,       by a Department
of the Navy long-range              plan.      Such a plan would help               ensure
that     the Navy’s     information         and data systems         would      (1) be com-
patible     with    each other,         (2) be standardized,           integrated,         and
interfaced        where appropriate,           and (3) serve       the information
and data needs of all              Navy managers       including       those within
the Office        of the Secretary          of the Navy.

       Therefore        the Secretary          of the Navy should           reevaluate
the Department’s           existing       long-range       plan to determine            whether
it is still        applicable         to the Navy’s         systems    development         ef-
forts.      In   the    event     that    the    Secretary      concludes      that     the
plan no longer          applies       or is unworkable,          we believe        that    a
new long-range          plan,     which would        include      the Department’s
goals   and objectives            for   its    information        and data systems,
should    be considered.
    APPENDIXES




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     13
                                                                                            APPENDIX         I


               Narrative  Explanation      of Data                      Contained        in
           Systems Development       Plans   (Format                     detail       omitted)


                  Section       1 - System          Summary        and     Evaluation

The information        presented         in this   Section     should     be                     consis-
tent with     the planning         data presented        in subsequent                           sections
of the Plan.        However,       unlike     some of the following                              sections,
Section   1 should       address       the entire    command information                               sys-
tem, rather      than just       the automated        segments     of that                        system.
It should     document      the organizational           missions      which                      the sys-
tem will    support      and, thus,        provide    the context       within                        which
the planned      actions      described       in subsequent       sections                        of the
Plan should      be evaluated.

     Section        2 - Information              System       Performance           Requirements

The purpose     of the Section     is to identify       the information      re-
quirement(s)      supported   by the proposed/existing           system and
the constraints       imposed  by the operating        environment      on meet-
ing these requirements.

                            Section       3 - System          Support        Plan

The purpose             of this        Section      is to identify              the resources             re-
quired        to support           the automated            part    of the command informa-
tion      system and to indicate                    whether       or not they have been
included         in other          programming          or budgeting            estimates         such as
the Activity              Operating         Budget,      Logistic          Support       Requirement,
etc.        Resources         included          in other       estimates          will    be identi-
fied      with     the document             and line        number,        if applicable.               The
extent        to which        the resource            requirements            incorporate           “get
well”       estimates         will      be indicated.             The impact           on the accom-
plishment          of command functions                   if these requirements                   are not
approved         will      be stated.             In estimating            costs,      the system
proponent          will     rely       on existing          accounting          procedures;           this
 Instruction            should       not be construed              as a requirement               to es-
tablish         a new cost accounting                   system.          If the system propo-
nent is not responsible                       for funding          all     of the required              re-
sources,         he will        include         separate       resource         estimates         for      each
responsible             major      claimant.          Resource         requirements          will       be
specified          for     each of the fiscal                 years      shown in paragraph                 105.
                                                                                               ..
APPENDIX      I


                          Section
                          ~-~-         4 - Management        Plan

The purpose of this         Section      is to delineate        responsibility
for specific      actions     necessary        for the design,       development,
implementation,        and operation         of the command information            sys-
tem.   Summarize planned          and completed        arrangements        in each
of the following        areas.      Identify       the organization        charged
with responsibility         for the accomplishment            of specific       tasks.
Treat by Data Processing            Installation       and/or     functional      area
where appropriate.

                    Section       5 - Implementation         Schedule

The purpose of this         Section    is to identify       and schedule       crit-
ical milestones,      i.e.,     events controlling         system development
and implementation.          Where a definite       schedule      is not known,
establish    an acceptable        time schedule.        Identify    any mile-
stones which represent          events which cannot occur before,               or
should not occur after,           the stipulated      time.      Comment on the
consequences     of not meeting        the planned      schedule.      If the
schedule   is based on the assumption            of a significant         increase
in resources,     prepare     a second schedule         based on level       fund-
ing.

                     Section       6 - ADPE Development          Plan

The purpose of this            Section     is to identify       existing      and pro-
jected      ADPE requirements         to support      the system.        The Plan
should be sufficiently             detailed     so that reviewing          and approval
authorities         are fully    aware, at least         twelve months in advance,
of requests         which the system proponent            plans to submit           for new
ADPE installations            or augmentations        or major replacements             in
existing       installations.         Cross-reference         to Section      3, as re-
quired,      to make the cost implications               of planned      installations
readily      apparent.        Requirements      will    be specified       by ADP unit.

                        Section      7 - Applications         Plan

The purpose of this Section               is to identify         existing      ADP appli-
cations     which will    continue        to support      the requirements            stated
in Section       2, to describe        planned    applications          which will       be
developed      to meet outstanding          requirements,         and to document
plans for developing           the ADP system.          These applications
should be described          in terms of their          functional         characteris-
tics    rather    than their      technical     characteristics.             Cross-
reference      to the mission        requirements       in Section         1 and the


                                          16
                                                                                            APPENDIX      I
    .
.
        information       and     system     performance       requirements            in   Section      2,
        as required       for     clarity     and brevity.

                       Section       8 - Information          System    Standards
                                                                             -.I__
                                       and Integration          Plan

        The purpose      of this     Section       is to provide          a basis       for a
        greater    degree    of systems        integration.            Detailed       instructions
        for effecting      technical       integration      and        standardization            will
        be promulgated       by separate         actions.

                      Section       9 - Telecommunications             Reauirements

        The purpose     of this           Section   is to     identify      existing         communi-
        cations   capabilities             and projected        requirements.

                                Section     10 - Data     Collection          Plan

        The purpose      of this     Section     is to        identify     the nature     and
        scope of the reporting           requirements             imposed    on operating
        forces      and departmental       components           in support     of the command
        information      system.




                                                         17
APPENDIX   II
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                                                                                    .




    Honorable l?Jmer 33. Staats
    Comptroller General of the United States
    U. S. General Accounting Office
    Washington, D. C. 204513
    Dear Mr. Staats:
           The Committee hearings on the Department of Defense Operation
    and Maintenance budget requests for 190 contain discussions of
    several new Automatic Data Processing (ADP) systems planned for
    installation   in fiscal year 1970 and future years. Such systems
    as the Arm "Conarc Class One Automatic System (COCaAS)," the
    Navy "Integrated Command/Management Information System (NICOMIS),"
    and the Air Force "Advanced Logistics System (AL&X)" are actively
    under development.
           It would be most helpful if the General Accounting Office
    maintained a direct effort in the area of development, installation,
    and operation of automatic data processing systems with periodic
    reporting of the results of its reviews.      The guidelines established
    in earlier,    related, Conrmittee letters of November 26, 1967 and
    August 6, 1968 adequately state the scope of the work to be undertaken.
    Reports such as yours of March 13, ~68 and January 16, 1969 are of
    the type in which the Committee is interested.
           The Committee would also be interested in an opinion as to the
    effectiveness  of the directive  of the Deputy Secretary of Defense,
    dated June 7, 1968, which places the responsibility    for the management
    of automatic data processing functions under the control of the Office
    of the Assistant Secretary of Defense, Comptroller.




                                      IS
                                                                                 APPENDIX   II




            The Committee will appreciate       the continued     effort    of the
    General Account+ng       Office in this   area and your     reporting     of
    significant    findings.




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