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Thu, May 15, 2008 23:59 EDT
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Posted by: Kim S. Nash in Rants Topic: Development
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When US presidents leave office, they leave behind pounds and pounds of paper and bytes and bytes of electronic records—all sorts of data reflecting the activities, and inactivity, of their leadership of this great nation of ours.
What happens to all that stuff, which is the property of the American people? Presidential libraries get copies of some material. But most of it goes to the National Archives and Records Administration, or NARA, a federal agency that keeps government documents.
(I say "most of it" because some material somehow gets lost. The most recent high-profile example being how the Bush Administration can't account for missing-yet-crucial e-mail related to the leaked identity of CIA agent Valerie Plame. Lost e-mail just happens, doesn't it. Darndest thing.)
Anyway, NARA safeguards and preserves government records in the name of safeguarding and preserving democracy itself, as the agency says on its Web site. And we're all supposed to be able to search and access these records.
What's really curling my liver is the big mess in which NARA finds itself as it tries to put in an electronic records archive system, or ERA, to manage all those important government documents and data. The plan was to have that big ERA in place in time to receive Bush's records when the man hands over the keys to the White House in January 2009.
Classic project management problems now plague ERA. And the problems will, of course, cost millions dollars, according to a May 14 report (PDF) from the Government Accountability Office.
NARA has been working since 2001 on ERA. Seven years and it isn't done yet. The first phase isn't even done yet and when it is, it'll be $8 million to $12 million over budget, GAO says. Just that phase.
Among the aggravating details, NARA and Lockheed Martin, the contractor NARA hired, decided to build most of the system from scratch. They have their reasons, but you gotta know that doing so stacks the odds against you at the start. Then Lockheed originally provided programmers without the necessary experience, the GAO says, causing project delays. Lockheed had to replace them with more experienced programmers.
The glacial pace of progress—and you may surmise I use the word "progress" quite generously—makes me want to pull my hair out:
* 2001 to 2003: Two years to go from developing records management policies to issuing a request for proposal to design the ERA.
* December 2003 to August 2004: Another eight months to award contracts to two vendors to design the system.
* August 2004 to September 2005: Another year to choose one of the two to build it; Lockheed got a contract that runs from 2006 to 2012 valued at, the GAO says, $317 million.
A scaled-back version of the first phase of the five-phase project is on track for delivery at least two months late, the GAO says. And because it will be late, and lack certain capabilities (such as the ability to manage access to classified material), NARA and Lockheed have had to come up with a Plan B for receiving Bush's records.
Federal regulations mandate that material from an outgoing president must be available to Congress, the former and incumbent president and the courts after the January transition.
And what is that Plan B?
Buying off-the-shelf software for a separate "executive office of the president," or EOP, system just for Bush's stuff.
This off-the-shelf system, which still will require lots of customization, is a different architecture from the overall
Your article was doing great at describing the ineptness of the project management for this project ...
And then you threw in your last line and changed the whole character of your post. Kinda like Rowlings, AFTER her wildly successful Harry Potter books made her a gazillionaire, and THEN she decided to tell her millions of fans around the world that Dumbledore was gay. An irrelevant point after the fact but a bomb nonetheless since it changes the context of everything before it.
The project planning for such a data retrieval and archival project would necessarily be complex. And as presidents more through time and our world becomes more electronic, AND the US Congress adds new requirements to save and preserve more and more data, of course the data volumes will grow astronomically from election to election.
And admittedly, it sounds like the prime contractor and the governing agency made some incredibly bad decisions and waited far too long to make them.
But, a simple search engine check can show you many many instances of the half a dozen presidents even I have seen in my own lifetime who have misdirected information about their presidency. NO president has had a flawless career in the White House. So by throwing the last line into your otherwise insightful and appropriate post to this site's readers, you changed its context into a political statement ... and missed your mark.
[And ironically, my "Are you a person?" question for this reply post is .... "America ready" ! :-) How apropos!]
Interesting point, but certainly not a unique position held by just this President. While I've only seen a few Presidents, I seem to recall that at least all the ones I can recall had some kind of secrecy issue during their term - lost data, internal spying, blocking Congressional investigations, missing media records, etc.
The bigger issue, and the one I would want to know more about is why did it take so long for the governing agency to take the contractor to carpet, why has it taken so long to turn it around, and worse, why are the US tax payers STILL paying for the project??
Both of you (Anonymous and Mark) make great points. I shouldn't downplay the complexity of the project. In fact the GAO addresses that, even as it takes NARA to task, listing the many different data types a presidential (and national) archive might contain:
"Besides the sheer volume, other factors contributing to the challenge of electronic records include their complexity and their dependence on [particular] software and hardware...text documents, e-mails, Web pages, digital images, videotapes, maps, spreadsheets, presentations, audio files, charts drawings, databases, satellite imagery, geographic information systems...They may be complext digital objects that contain embedded images (still and moving), drawings, sounds, hyperlinks or spreadsheets with computational formulas..."
GAO goes on even after that, noting that now dynamic Web pages are common that create data on the fly from databases and exist only in that moment. I wonder, how do we archive those? Should we? Who decides?
Archiving is rarely easy. And it gets so many companies into trouble, regardless of intentions. I think of the investment banks, for example, that faced employee lawsuits in the last few years and were unable to produc just e-mail for the courts.
About my dinging the Bush White House for e-mail problems -- well, it's just a recent example and not to say that other administrations, Republican and Democrat, didn't lose data. Anyone ever find those missing minutes from the Nixon tapes?
I meant to mention that this is not the first time the GAO warned of trouble with NARA's ERA project. Pertinent reports date back to 2002.
--kim
The missing e-mail story has been widely reported as one of secrecy; this is an interesting take on it, from an electronic records management perspective. However, I would like to point out a factual error: your characterization implies that the presidential libraries are distinct from NARA, and are not the official repositories of presidential records. Presidential libraries from Hoover through Clinton are federal institutions operated by NARA. The libraries do not get "copies of some material." All presidential records - and many other kinds of records, along with gifts, artifacts, etc. - for these presidents have been deposited in their respective library. From President Reagan on, the Presidential Records Act of 1978 requires this (Presidents Hoover through Carter donated their records and other papers to their libraries).