Staffing plans for IT upgrade at FBI called inadequate

The FBI has failed to properly analyze staffing needs for its $425 million information technology modernization, putting the program at risk of delays and cost overruns, according to a new report from the Government Accountability Office.

A majority of employees hired to staff the modernization program, called Sentinel, were contractors, the report (GAO-07-19), published Tuesday, stated. In addition, a few key management positions have yet to be filled, GAO stated.

There are no generally accepted standards governing the optimal ratio of government-to-contractor employees, but acquisition experts have expressed concern about an over-reliance on contractors for program management jobs, GAO said.

Sentinel is a six-year effort to replace the failed Virtual Case File project, and is intended to upgrade the law enforcement agency's antiquated paper-based system for managing information and investigations. Lockheed Martin Corp. in March won a contract to manage the program.

The FBI moved quickly to staff the program office, GAO said. Of 78 positions there, 60 are designated for contractors. Four government positions remain vacant along with 11 contractor jobs, including that of lead test engineer.

While the program's immediate staffing requirements have been largely met, the agency has not developed a plan for addressing future needs, reviewers found. The FBI lacks a well-documented inventory of the program staff's existing skills and knowledge, and doesn't have a plan for addressing expected departures and filling anticipated employment gaps, the report stated.

"Unless the FBI adopts a more strategic approach to managing human capital for the Sentinel program and treats human capital as a program risk, the chances of delivering required intelligence and investigative support capabilities in a timely and cost-effective manner are reduced," the report stated.

Program officials told GAO they plan to manage their staffing needs in the same way they initially filled program office positions. The FBI's IT management policies do not require them to do otherwise, they said.

GAO recommended that the FBI establish policies for strategically managing the staffing needs of all IT programs and implement them across the department, including in the Sentinel office. Reviewers also said that staffing availability should be treated as a program risk.

According to GAO, the Sentinel staffing plan stated that finding employees is critical because recruiting skilled IT professionals with security clearances in the Washington area is challenging. In addition, four of the 19 government employees in the office are on temporary duty, including the program manager, whose two-year detail at the FBI expires in 2007, though it could be extended another year.

In comments on the report, FBI Chief Information Officer Zalmai Azmi agreed with the recommendations and described the measures that were being taken to address them.