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.TOP SECRETl~/l20291t23 Report OS-INTBL-03

December 15, 2004 Audit Report

OFFICE OF THE INSPECTOR GENERAL

OF THE

DEPARTMENT OF DEFENSE

DEPUTY INSPECTOR GENERAL FOR INTELLIGENCE

Requirements for the TRAILBLAZER

And THINTHREAD Systems (U/IFOU9j

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Additional Copies (U)

i ii••Th.omas F. Gimble at(703) 604_(DSN

Suggestions for Audits (U)

(0) To suggest ideas for or to request future audits or evaluations ofDefense intelligence issues, contact the Office ofthe Deputy Inspector General for Intelligence at (703) 604-8800 (DSN 664-8800) or fax (703) 604-0045. Ideas and requests can also be mailed to:

(U) Office ofthe Deputy Inspector General for Intelligence

Attn: Executive"Officer

Inspector General ofthe Department ofDefense

400 Anny Navy Drive (Room 703)

Arlington, VA 22202-4704

(U)

Defense Hotline (lJ)

(U) To repbrt fraud, waste, or abuse, contact the Defense Hotline by calling (800) 424-9098; by sending an electronic message to Hotline@dodig,osd.mil; or writing the Defense Hotline, The Pentagon, Washington, DC 20301-1900. The identity ofeach writer and caller is fully protected.

Acronym(U)

(U)NSAfCSS National Sefurlty Agency/Central Security Service

b(S)TOP SECRETIlC6MDilY/26291123 Per DaD IG

http:Hotline@dodig,osd.mil

lOC1D: 3253346 TOP SECRET//€OMIN'f'1/26291123 INSPECTOR GENERAL

rt DEPARTMENT OF DEFENSE 400 ARMY NAVY DRIVE ARLINGTON, VIRGINIA 22202-2B84 1 1 December 15, 2004

1

MEMORANDUM FOR DIRECTOR. NATIONAL SECURITY AGENCY / CHIEF,

CENTRAL SECURlTY SERVICE (U)

SUBJECT: Audit of the Requirements for the TRAILBLAZER and THINTIIREAD Systems (Report No. 05-INTEL-03) (PrQjocrNo. D2003AL-OJOO) (U/fFOUOJ

1 (U) We are providing this report for review and comment. This audit was

initiated from a Hotline complaint. We considered management corrunents on a draft of1 this report in preparing the fina1 report. Management conducted a security classification

review ofthe draft report. .

1 (U) DoD Directive 7650.3 requires that aU recommendations be resolved.

1 promptly. Management nonconcurred with Recommendations A.I. and A.2. Management partiaUy concurred with Recommendations A.3., B.l .• B.2., and B.3. As a result ofmanagement comments, we revised Recommendations A.2.and B.l. We request that the Director, National Security Agency/Central Security Service provide additional comments on all recommendations by January 15~ 2005.

1 the courtesies extended to~estaff. estions should be (703) 604-11110r t

Anoendix K for the report distri ution. e team members are

1 1

~~i·~~

1 Thomas F. Gimble

1 Deputy Inspector General for

Intelligence .o.',::gm. :n J.lQ"~k' :1004 D£CUtSSifY ell: ~1\;U

Special Warning

1 fiji document contdnl inftn !!.tIticm e:ft:lllpt frem m.ed.t6pY dlseIOIYr,e dlil" iIl4II ~Qm

1 of In:f()! rmticll Act This report COl:lWu eeflilB tHiel_MiRed illfe.....dElIl Alltirtg t" t.Ile el.'glililladst1 ••ul fqeti6B sf tfte Nl:tieftd Security Jcgeaey Utltt JeI1 he pFGteeted Ity tlfe Natioltal S'eeuJiC)' Act of 1'59. as ameudt:d (56 United SCstel Code § 49i (nctcH. ReprodlietieB sr reB!:8val sf ,t,es is pFG:lHSited. Safegaa.cis malt lie t.~ to '"....ut public.tica or improper dfl£km're of the IMeFfB:ldoB In Uti. Aport

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L Office of the Inspector General of the Department of Defense / .l !

Report No. 0S-INTEL-03 Decemb~r 15,2005 (Project No. D2003AL-OIOO) /

f - .I ~ Requirements for the TRAILBLAZER and THINTIIR1,£AD

J Systems (U) /

,/J Executive Summary (U) ./j

(Ullli"~ l'I:J:l. Who shoUld Read This Report and Why? AClJuisition decision.fuakers at theJ / ,

. National Security Agency (NSA); the designated NSA Milestone Decjsion Authority for ~

J the Under Secretary ofDefense for Acquisition, Technology, and Logistics; and personnel in the Office ofllie Assi . Inte tinn should read this rt

J f eNSA-. .I ! ; ./ II (UJ~Baekground. We perfonned this audit in response 1o a Defense Hotline ! complaint, which alleged tPat NSA actions in the development QfTHINTHREAD and " TRAILBLAZERresulte(Hn fraud, waste. and abuse. The spec~fic allegations were: (I)J f TRAILBLAZER deve19pment wasted! Hollars; (2) NSA

. f disregarded solutions to ur ent .S. national securi needs' 3 NSA modified or

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/ / /~;;(UJJlI'6OO) TRAILBLAZER. TRAILBLAZER is an Acquisition category.J. pro~.J ! I .IF to acquire, through a series ofspiral developments, an integmf:::.to:Vide tbe! / /~/' ·much·needed missioncapabilily against the Global Net~prk.·: ~ 1 I • i .'§ .1 [1RAIL IS, g !.J !! /t./ developed See Appendix B for further. details. f .II lff:.// . ---..----. . [ /

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~bJ III (b) (3)-P.L. 86-36

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...... (U) M;n:ag;;~ni:"Gon.unents and Alldit Response. The management comments form '. ··..Jhe Director;NSNChie~' Ceptral Security Service contained significant disagreements

With the report :fiiidings. The:'Dir~or stated that the world's most advanced cryptologlC 1 exp:mjs have assessed lhc;situation and~ coJ;tfident in the aOO NSA has taken. The •. ncurred wltli"the recommendatiQ

--I

.an me u S a.s!eSSment as part 0 e IL L. ER estone ecISlOn. e J ProgciUp Executive Offi~ andTRAILBLAZER managexn.ent wiU estimate the . costlsc~¥u1e impacts afteJ::,they receive estimates fro?l the'revi~~ team and will decide at that ttnle. whether to concUr. Three ofllie fourparnal concwrences d end n the J Pro am Eiecutive Officer and.TRAILBLAZER mana ement decislb _

!JI{~ \f::11.We revised tli~.J~port fin~ings and ;~mm~dations based on the Director's

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Q 'M ~We';~~tthat the Director. J

NSAIChief, Central Security Service provide additional comments to this report by Janwuy 15, 2005. See the Findings section oftha report for a discussion ofmanagement comments and audit responses, Appendix J for a detailed audit response to the management comments, and the management comments section ofthe report for the complete text of the comments

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Il Table of Contents (U)l (Ul'1.roU01 lIb) (3)-P.L. 86-36

/ '~!\.~ Executive Summary i/ ''\\\ Background 1l / \~\

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l Objectives l \. \. \" 3 . \ '\ \ . .f \. ..... \' . ./ \ \ ... \"Findings , '" \ \

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Appendixes i

jA. Scope and Methodology 38l j

Prior Coverage .i

39 B. TRAILBLAZER 40 ,

l C. \ . 42 D.

\ 55l \ E. j \ \ 58 ~t :ni~1 SbW;es yi \ 62 73l I. ossary 88--I

82

J. Audit Response to Management Comments 95 K. Report Distribution 113

-1 National Seeurity Agency, Central Security AgencY Contments 114

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o (U) Background . \e. l (3J -P.L. 86-36Q

Q ~otlineAllegations. A letter to the Defense Hotline requ \~:\. '¢at the

Inspector General ofthe Department ofDeferise audit and investi .' f" the acquisition of the TRAILBLAZER and THlNTHREAD program.s.\The··cpmplaint charged the NSA with fraud, waste. abuse. and a disr'" ". ent

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(U) National Security Agency Mission and Planning Guidance. The mission of the National Security Agency/Central Security Service (NSAlCSS) is to

J ] provide actionable Signals Intelligence to U.S. decisionmakers. from the national

to the tactical level, while protectin~ the nation's vital infonnation from attacks. The urgency ofthe NSA/ CSS miSSIon is greater than ever since the September ·11til attacks and the Global Wax on Terrorism. .

(U/~ addition, defense planning guidance and the Director ofCentral

J Intelligence guidance stipulate the need for "St globally vigilant intelligence system that can provide early strategic warning ofcrisis and det~ threats" that is supported by capabmti~ such as an "information superiority backbone,"

J ____,_, __._ ...___.__ ~BLAZE;Ris-~ , F.m)or acq~sition p~~.which fblTi j"-'-'- started in FY 2000 and 18 schedUled for tnltial operating capablhty m FY 2009, to (b) (3) -.5 0 USC 403 acquire an integrated system that is composed largely ofcommercial technology (b I (3)-?, L. 86-36 to provide the much-needed mission capability against the global networlc through

.1\, a series ofspiral developments. The TRAILBLAZER system will deliver

\'" hardware and software, system integration, and program integration services toJ .....\..,. include:

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cqubitfon. Guidance for l "".-.. r:.z.,;:.~~::::::'!"::!'!~SI.---r::~U""lS~lti~O~n'""!'ls~pro=V1=-r'!"'!"'!111~· D Directive 5000.1,

on ;, . • ,an the Clinger Cohen Act of 1996. Specifically, these regulations provide the framework for the acquisition ofmajor automated l information systems.

(U) DoD Dlreettve 5000.1, "The Defense Acquisition System," May 12, 2003. lDoD Directive 5000.1 establishes the management process by which the DoD provides effective, affordable, and timely systems to the users. DoD. Directive 5000.1 states that all acquisition professionals shall continuously develol? and implement initiatives to strea.mline and improve the Defense l AcquisItion System. Specifically, this directive states that military decision authorities and program managers shall examine and, as appropriate, adopt innovative practices that reduce cycle time and cost and encourage teamwork. l

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(U) DoD Instruction 5000.2, "Operation oftbe Defense Acqulsit10n System,'" May 12, 2003. DoD Instruction 5000.2 establishes a management framework for translating mission requirements into stable, affordable, and well managed acquisition programs that include weapon systems and automated infonnation systems, and bighly sensitive classified, cryptologict and intelligence projects and programs. Instruction 5000.2 states thatt during .the initial concept design, DoD Components should examine mUltiple concepts and material approaches to optimize the way that DoD provides these capabilities. That approach sha1I include robust analyses that consider affordability, technology maturity, and responsiveness.

(U) CIinger·Cohen (Information Technology Management Reform) Act of 1996. This act requires that heads of executive agencies develop and use best pmctices in the acquisition ofinfonnation technology. The process ofan flxecutive agency shaH include minimum criteria to be applied in considering whether to undertake a particular investment in infonnation systems. including criteria related to the quantitatively expressed projected net; risk-adjusted return on investment and specific quantitative and qualitative criteria for comparing and prioritizing alternative information systems inveshnent projects.

(U) NS.A1CSS Circular 5000R, "Acquisition Management," January 9, 2001. The circular implements the principles ofDoD Directive 5000.1 and DoD Regulation SOOO.2-R within the NSAfCSS. It establishes basic objectives, policies, procedures, and responsihilities for acquisition management. The circular states that for acquisition management within the Defense Cryptologic Frogram, NSA should address interoperability between existing and future Service tactical Signals Intelligence systems, oonneotivity between tactipal and national systems, oonsider applicable technology that may satisfy the requirement, and possible duplication ofongoing effort.

(U) Objectives

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, l (SlfSf) NSA Modernization Studies. The:first "NSA Modernization Stu4Y/' July 200It was conducted by The National Technology Alliance, National penterfor Applied Technology after a thorough review ofon1roin~ activities withfu the TRAILBLAZER Program Management Officq 1

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(U/7F'OYQ) The National Center for Applied Technology issued a second report, a "quick-Iooklt follow-on to the first report, in December 2001. The Chie-4 Signals Intelligence Programs invited the original study team to conduct a foI1ow- ' OD study to evaluate progress within the TRAlLBLAZER Program Management Office. Despite noting some changes made in NSA management and the TRAILBLAZER Program's acqUisition strategy that promised to address the conflicts and issues DOted 'in the first report, the study team found that:

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(U)Summary

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(U) Management Comments on the Finding and Audit Response

(U/JII'OtiO) ~ementComments. The NSA management stated that the draft report did not mclude significant information or included wrong or misleading information. The tomplete list ofmanagement tomments is in the Management Comments section ofthis report.

23

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(U/~Audit Response. We obtained, revieweG, and analyzed many documents and we interviewed several NSA and contractor personnel to form the conclusions in this report. We included all infonnation relevant to support the report findings and rCCQmmendatlons. Many people we interviewed asked not to be identified fur fear ofmanagement reprisal. We gathered information from many sources to support the finding. Paragraphs frequently contain information from several sources to reinforce conclusions. Based on management comments, we made various editorial changes to the draft report. See Appendix J for a completed audit responSe to each management comment.

(U) Recommendations, Management Comments, and Audit Response

,.,....._..,.·..·····1 __.......'.... L._______________________-1

.,,' (U) A. We recommend that the Director, National Se\:urity Agency/Chief, Central Security Service:

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o B. The NSA Transformation o

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(U) Congressional Concerns on Digital Network Exploitation

J (U) The National Defense Authorization Act for FY 2002 stated that:

J (b) (l) (b) (3)-50 USC 403 ftfSlISij The NSA has clearly Ill.8de great strides in seeking to

J {bl (3)-P.L. 86-36 uansform itself in many areas. However, the NSA appeaIB to have

tlll1dt; only modest progress in ilie area most important to irs future; aequiri.ng the techlUea1 ability to operate effectively against the e • r:zlnhaf .........,,...,t. The NSA has lon2 known that

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(U) T~LBLAZER '\\". .

J J (SNSI) en, March 24, 2000, the Director, NSA signed the TRAlLBLAZER 1

charter to'~te a new Signals Intelligence enterprise to exploit the global network. ~~::::~with an estimated development cost Dfapproximatel' as to respond to the opportunities and challenges provided by logies to design new operational practices for on-time delivery ofproducts and services in the manner that best met customer

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{S7tsQneeds-unrestrained by past practices or past technologies. TRAILBLAZER 1 had the following key responsibilities 1

• (U/tfiOOO) Ensure the execution ofa new NSA program transfonning the u.s. Cryptologic System exploitation ofthe global network. Map detailed digital network exploitation mission requirements to a cryptologic architecture and implement them; and 1

• (U/~Act as the catalyst for transforming customer interaction and operational practices. Begin the retooling ofNSA 1programmatically, technologically, and culturally to provide mission services and capabilities that are responsive to the emerging technology and customer needs. . 1

_.__._- .._.__-----·(lJ)IL..--_____----I~RAILBLAZER (1) 1

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J \.'-"\ ..... ...... ,·-··,··.. ·· ..·-Wh;tNSA.l\f.OderntzanOIl Study. The House Permanent Select Committee

- \.\ '...... onlnte!ligence directed-th~ first "NSA Mod~tion Study;' July 2001, which

\ \. .'........ was ~nauct~ by The Natiottal..T~ologyAlliance, 1;lati0Jl1!l ~enter. fo! .

\ \. ....... Applied TechiiolQW' After a thorough--re-!l!.ew rfommmg 8cti;fjes Wltbm tbeJ \ \.. ....... TRAILBLAZER Pro~Management OffiCe_ __

\, \" "r---'lmd interviews withk~yprogram personnL...e•1,--:th7""e--:N:O:a-=ti.....·o-n-;-:::Cen::--:ter~fi;:-or---....l \ '\ ~ Techno1ogy team obs'erve4,~at fh:;~:T,BLAZER was noortvJ \ \, executed and bad an overly expenslv~ ______

", \ The NSA Modernization Study recomm'l;;;,;en~t:'M'1:;;;ar.:------------...I

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-(S//Sf) Seeolld NSA Modernization Study. A second National Center for . Applied Technology report, a "quick-look" follow-on report, was completed inJ

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\ \ December 2001. The Chief, Signals Intelligence Programs invited the original

study team to conduct a follow-on study to evaluate progress within the\] TRAILBLAZER Program Management Office. Despite noting some changes\

J'

'. made in NSA management and the TRAlLBLAZER Program acquisition strategy

\. that promised to address the conflicts and issues noted in the fust report, the study

'\ team found that:

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- \~------------~\--~I l (U) NSA Technical Reviews \ l'I ; ~~Durin FY 2901, NSA initial and fo110 internal teclmical'reviews(b) (1)

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\.(U) TRAILBLAZER Acquisition

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(SHS~ ::rRAILBLAZER was deyelope~Uoo:Uii~g.,w,

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J J ] (U) Summary ofManagement Comments on the Audit Finding

and Audit Response

J (U/IFOl:Jet Management Comments. NSA management referred to several

statements in the report that did not include all referenced documents and that

some paragraphs contained wrong or misleading information. The complete listJ ofmanagement comments is located in the Management Comments section of

this report.

J (U/JIi'Of:f6) Audit Response. We obtained, reviewed, and analyzed many documents to form the basis for the conclusions in this report. We also interviewed several NSA and contractor personnel, many ofwhom asked not to be identified for fear ofmanagement reprisal. We ga~ered infonnation from .

J J many sources to support the finding. Paragraphs frequently. contain infonnation

from several sources to reinforce conclusions. See Appendix] for a complete audit response to each IDlUlagement comment.

J (U) Recommendations, Management Comments, and Audit

Response lIb) (l}./ (b) (3)-P.L. 86-36

j (b) (5) (~RevisedRetommendatlon. As a result ofmanagement cdmmei\~, we

J IreV1sed Recommendations B.t and B.3 to ctarlfythe intend1!Use of \::::::"\.. \. \

1. (UI1FOUQ}.lYe recommeDd that the Director, National Security .\. \.J Agency/Chlef, Central Security Service: \ \ ----------------------.~,~\"I (QDes!Jmatea team to ......1 \ IJ

J. (U/IFOUO) Manlgement Comments. The Director, National Security Agency/Chief, Central Security Service partially concurred with the intent ofthe recommendation but was waiting for the results ofa cost and schedule impact J study before fully concurring. The Program Executive Office is establishing an

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(U/~) independent review team to complete the study before Milestone B. scheduled for December 2004, because the study win have an effect en both the cost and schedule fer Milestone B.

-(eT~~{Iit'Jlesponse. Based on management comments. we revised this l IrecommendatiQ.n. The Director, National Security Agency/Chief, Central

Security Service'comments were responsive and the proposed actions meet the

intent ofthe reco:mTne:IJ:dation. The immediate actions taken to designate an

independent review teamt~ perfonn the assessment are commendable. JMilestone B has slipped to Feb ~~m.a:umu~w·stJ·rua:ma:mJl':lS.l~illJilmllL-...,

time to com 1ete the assessmei:i

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] 2. (U/I'F'tYffOtprovide the results of the external assessment to the

TRAILBLAZER Teclmology Demonstration Platform Milestone Decision

Authority (or use in making the ~estoneB decision. J (Uf~Management Comments. The Director, National Security

Agency/Chief, Central Security Service concurred. The completion ofthe

independent assessment is currently scheduled fer December 2004. J

(U/~AuditResponse. Although the Director, National Security

Agency/Chief, Central Security Service concurred, the concurrence is based on ']

completing the assessment requested in Recommendation B.1. We request that

the National Security Agency management provide additional comments in

response to the final report identifying NSA plans to eliminate the cost and ]

schedule risks for completing the assessment.

J (U/~ _.gemeat 6.mments. Tho Director, National Security ]

- Ag~cy/~ef;-Gentral..s~ty..B..~1~.t~_~115:urredt. andjWtil that the assessment " ··'~· ..-,...___teQuired m Recommendation B.1 WIll De mcludedm-th,L..._______--'.

Pm'Milestone B, scheduled for December 2004. ]-.,. ..__.(BIfSI) Audit R;';'Dii~-"Altho~gh the Director, National Security Agency/Chief,

Central Security Service concurred;the-COll.currence is b#lSed on completing the

assessment requested in Recommendation a:l:....Based on 1981W!:emCllt.cmmIlC'.llts...., J

to Recommendation B.2. this recommendation was reVis .

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1 ~ twe request additional comments in response to the firuit report identitYiIig NSA pans to eliminate the1 cost and schedule risks for completing the assessment. l

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Appendix A.. Scope and Methodology (U) \\"\\: ~\ ~\ 1\ \ \\.1\ -. \

(UitFooo;.-We reviewed documentation dating from November 200Q\lu'~~gh

October 2003 including background infonnation, mission and operatiQUat ri~

statements, concepts and operational requirements, and contracting ana 'budget'\ ' 1

documents. Also, we conducted interview. . \"

'.. . . I 1 1

t. \ 1(U) We performed this audit from Apri12003 through May 2004 in accoi:d~ce with generally accepted government auditing standards. \ \

\ \(UffFOUQ}-Umitation to Scope. Because our objective was limited to

;

\ \ 1

evaluating a Defense Hotline allegation relating'to the acquisition ofthe \ \

TRAILBLAZER and THINTIlREAD nrolttatns we did not review the \ \

roanal!ement control nro.e;nun.l i 1\

\ \

\ 1 \~

\ 'l (U) Use of Computer-Processed Data. We did not use computer-processed\ data to perform this audit. ' \

1 1 (U/f.POUO) Use ofTechnical Assistance. Audit Follow-up and Teehnical \ Support Personnel assisted us during the audit. The Technical Assessment \ Division assisted in the analysis ofNSA acquisition I '\ l (V) General Accounting Office High-Rlsk Area. The General Accounting Office has identified several high-risk areas in DoD. This.report provides l coverage ofthe Infrastructure Inefficiencies and Infonnation Technology Investments high-risk areas. l

(U) Prior Coverage

(U/IF"OE:1Ol..During the last 5 years, the Inspector General ofthe NSA issued one l report on TR,AILBLAZER that discussed improperly based contract ~st increases, non-eonfonnance in the management ofthe Statement ofWark, and ' excessive labor rates for contractor personnel. No prior coverage has been l conducted on the NSA THINTHRJ?AD Program during the last Syears.

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(U) Inspector General, NSA

Q (U/~eportNo. ST~03·0014, "TRAILBLAZER lISIGINTPrograms Systems Engineering and Te()1mica1 Assistance Contract," September 30, 2004 o

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Appendix B. TRAILBLAZER (U) \\ \'~\.:

(U) Objectives of TRAILBLAZER and the Technical \ \

Demonstration Platform \ \\

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Appendix F. Technical Studies (U) 1

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Technical Review l

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(UffFOUO, Summary ofStudy Recommendations. The following is complete. list ofrecommendations oft;h~ . !rnINTHREAD Technical Review: .."~ ..-./"

................-

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1 ~------------------------------------------------~ (tJ) NSA Modernization Follow-Up Study

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\ Technology and Evaluatiorde;am in February 2002, but the formal evaluation wasl \ executed from March 1,. 2002;'tIu:ough March 18, 2002.

\ (U) Summary of TBINT~:\nI1 \. \. '\J \.

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(U) General Recommendations. 1(U//..Fet1t1) Thd IAssessment Study made the following

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• (U) Current THINTHREAD system develo~entprocedures were effective. and a cooperative development effort was proceeding smoothly 1 with the pilot site.

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(u/l'P6OO) Recommendations. The issues previously mentioned would not

i~______________________________~______________~ i

06 Finding 3 Discussion /

../ iii (U) There was minimal user, system, technical, or programmatic documentation.

/ The existing documentation was insufficient to support the planned deployments. ,./

...• (U) There was no user documentation on how to use the tool. That was inefficient and could lead to a significant increase in user error.

/' Difficulties using the tool can also lead to an increase in support calls that

...l drained project resources. , ....

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• (U) TIUNTHREAD did not have a clearly stated. documented set of

~/ mission goals or objectives. There was no program plan, making it

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difficult to communicate infonnation about THINTImEAD at a

/1/' pmogr.wrrunaticleveL

./ • (U) A deqilled schedule including all activities related to the system and

it" deliverables before, during. and after deployment was not available. A

J/ high-level schedule containing the chronology ofdeployment was if developed. but a detailed schedule was essential for proper resource ·1i~1'~~.~.;:;;,t~ L. 86-36 management, costing, and prediction .

•••••~_. .~!~.:b;~;.,. ~''''~:-';::'''~:.''::!:;:.,_•• .,..

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(U/1F9OO). Recommendations. Develop necessary docwnentation. ni4t would

o Q necessitate an increase in the personnel devoted to documenting the systerh, but is

essential to the successfuJ deployment and operation ofTIIINTHREAD. The lack

of this documentation presented a serious risk to the successful deployment Of

THINTIIREAD. \.

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(U) Finding 4 Discussion ~\

\o AMiJ'O!lO) Deg10wenl pJ:in.was slow to ~

J ......// • (U//Ff3.UOl.Hi8toricaUy~ the TIIINTHREAD Program Team focused on

J .,/ the Drototvoe demonstration at the Dilot site. The 's scone did not .....

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""::~: I""""""J J • (U/IfIOUO) "'O~ ent and operation were not identified The

relationsbips between work roles throu out e system s life cycle were not defined. The authorities for each work role bad not been identified.J The organizational structure set forth by the THIN'IHREAD Program Team focused on system development, and did not address system

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W/~) dw1oym,entl I .... '/A ]ThemmTHRBAD Program Team was defiriirig the

_.";l~::-~~~~~~~~~:l a~i!ionalwork roles necessary for deployuienl activities.. .. I ..

'('b'j (3) - P . L. 86-3 6 • (U) THlNTHREAD did not identifY all the organizations requiring

coordination through the various stages ofdeployment.

(U/.iifof:Jo.LRecommendations. The findings presented a serious risk to .... successful deployment ofTHINTHREAD. To mitigate those risks, the following recommendations were suggested.

-• (b) (3)-P • L. 66-36 • (b) (5)

.-.,--_... • •

(U) Finding 5 Discnssion l (U/IFOY~ Xhe customer service and user support processes for THlNTHREAD weremanualIy in~ensive and directly involved the technical staff. l

• {U/J1:i10U~ The quality Ofservi~_a,qg~IbeCeiv::""'----'Psing ________ -==.::::::::.-TIUNJlIREAD::.wmnoonsist;n.t.... SomC1I1teiVieWedby

(b}(3"j-=P ~ i-:--66:'36 --'- TeSi;Technology and Evaluati~J;l ~eam VIewed tlie T4ITHR.BA.:r:! l -'-='''='''''''-''''-_-'''''''-0'___ ~oram Tea~ to b~ unresponsIve mg~eral cu.stoma: support, while--"'---=+::::::..-;;:-- __., )xEI1enced good responsIveness to then- requests for

ttions or mOOifi~tion.s1 I l • (UIIPOUQ.) There was no formal trouble ticket mechanism in place. Ifa

user or operator had a problem with TIiIN1'HRBADs he contacted someone on the THINTHRBAD Program Team. This contact depends on l personal acquaintance, because no list ofTHINTHREAD personnel was readily available, and there was no mechanism to locate the proper TIflNTHRBAD contact. Similarly, the status ofthe response to a request l could only be leamed by personal contact,

• (UllFOf167 There was no fo.rmal mechanism for managing externally lgenemted requirements, to include submitting a new requirement to THINTHREAD or for following the progress ofthe work.

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• (U/~ . team was in charge of

maintainin itb just a few users,o .........._...... ··--ihafpemon was a e to_~j.e;r_or..c ang ccording to user

-" ..-., ...........__..___._ requests-·recei:ved "(il1Ule telephone or by e-nw . owever, as more users

3) _P···L---8·;~;~" are added, one person may have difficulty meeting the increased demand. o . . - ----.-.-n-The.lack.ofperBQ.l!!l!~.~~y become a problem as =INJ'HREAD was scaled to handle an lOcreas-eduser'lo~ _ I

o o o • . (U//FeYQ) A list ofWeb interface functionalities p~~pose4 . was not incorporated into TIIINTHREAD. 1-....----1 o o

(Ut.fPOBe) There was no· pt'OQeSs for controllin~ and measuring operational, programmatic, and technical performance effectiveness ofTHINTIIREADJ once deployed. .

• (U/JlI6t:tQ.) TIIINTHREAD did not have a clearly stated set ofsystem specifications or a method to validate the THINTHREAD concept or perfonnance results. Thus, there was no way to determine ifthe system

79

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O· ......, (b) {3J-P.L. 86-36 .... "\ • (U/IfOUO) Acquire ~ ~mmercia1ly available conij~tioK~ntro}

system to enable verstorung. rollback, and configuration management..0 The system should interface with the trouble f;icketing systeM aitd the requirements management system to Provi9C'fulJ traceabilitY.\ \\

...... 1 \ \o • (UiAFeUOjDevelop Stand~ ofP~6imance(iffutW'eTIinfrHR,EADdevelopment crosses orgaruzationl,U·groups). i \ \ / 1\\

• (U/n:O~A~tomate reactiqns' and responses to the existin~ :fulfIt and\o warmng detection systemL/ ~ J \ '\ -,................... \\ \1o / \ • (U~ 1;stB'blish a requirements management process for \

o u,!WAD that is linked tol'---__~______---'I (U) Finding 7 Discussiono

e number and skill mix ofTHINTHREAD nnel was.

o ~1i!..I:!:~~~~:=,~nnel required for

1.3 H? L. S€-36:-::::--planning-and' executing-installatio so; there was. a lack of .. ,.... "', '" --cfocumentatioDtPIQviding the necessary mam anoo and help .desk support,o ........."..... oonfigurapon managemen~-and ..planning.!Ylg.!~~~u1ing.. CpUectively, thyse

o .... '..... ~_ shortoommgs jeated a senous nsk to successful comp1eti0nL _ J ".. 1 ~_ _ 1..-._--....I (U/lFOtJ~ Recommendations. The finding presented serious risk to successful deployment ofTHINTHREAD. It was recommended to continue to identify and o I=:~':lhor..d~ofs!dll"'~=-= """ired fur

ij ~~.

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ay produce a more effective result in terms ofi>Oth complexity and cost. ... A ew assumptions apply;

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NCLASSIFIEDJlFOR OFFleb~l uscAppendix I. Glossary (U) BY COMPILAT!ON WHEN ASSO WITH REST OF D,-",O..;:;.CU=t=~IE=N,-,-T__---J 1

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Consultative Committee for International Telegraph and Telephone (CCIT1). 1Consultative Committee for International Telegraph and Telephone is the International organization responsible for the development 'ofcommunications standards. Now called 1 the International Telecommunication Union Telecommunication Standardization Sector.

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Elettronfc Industries As~odatlon (EIA). A group that specifies eJectrical transmission !

standards. The Electronic Jndustries Association and Telecommunications Induslry I

Association have developed numerous well-bown communications standards. including l

Electronic Industries Association and Telecommunications IndusfIy Association ..232 and I

Electronic Induslrles Association and Telecommunications Induslly Aosocla!ion -449. I

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International Telecommunication Union Telecommunkation Standardization ~ lSedor (lTV-T). International body that develops worldwide standards for i \telecommunications teclmologies. The International Telecommunication Union Telecommunication Standardization Sector carries out the functions ofthe former Consultative Committee for International Telegraph and Telephone. l i

\ International Organization for Standardization (ISO). International organization that ; is responsible for awide range ofstaru:iards, including those relevant to networking. The \ l International Organization for Standardization developed the Open System " Interconnection reference model, a popular networking reference model. \

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I (b) (3) -T Institute of Electrical and Electronics Engineers (IEEE) 802.3. Institute ofEIectrical

and Electronics Engineers LAN protocol that specifies an implementation ofthe physical

layer and the MAC sublayer ofthe data link layer. Institute afElectrical and Electronics

Engineers 802.3 uses Carrier Sense Multiple Access Collision Detect access at a variety

ofspeeds over a variety of physical media. Extensions to the I Institute ofElectrical and

Electronics Engineers 802.3 standard specify implementations for Fast Ethernet.

(b){3)-P L. 86-36

Open System Interconnedion (OSI). International standard~tion program created by

International Organization for Standardization and International Telecommunication

Union Telecommunication Standardization Sector to develop standards for data

networking that facilitate multi·vendor equipment interoperability.

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Telecommunications Industry Associlltfon ('I'IA). Organization that developsstandards relating to telecommunications technologies. Together, the TelecommWlications Industry Association and the Electronic Industries Association have fOlDlalized standards, such as Electronic Industries Association and Telecommunications Industry Association M232, for the electrical characteristics ofdata transmission.

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Appendix J. ~esponse to Management Comments (U)

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\ ....\...,..\\.... NSA will a ee to conduct an independent . e believe that it will validate all of \, \\ the assertions niMe.in our reSp"""ons--eg........o..,.,.,..e........,.........,.....,....,.I·· tOf General recommendations.

\ \ ......... F=~c:riedd::~~fffl :it~ th:~~~:~'...:nH1:p ::nla;n~::::uA wad: :dl'\. Iill Iwhich was conauctea.In an open· ~on'1o proVlae ffi~esl oenent lor \, Agency mISSIOn and customers. More Importantly, tfiere h.~ been no eVldence

, documented during this Office ofInspector General investigauQl1 that supports that \ complaint ". -~. \' lib) [3J-l?L. 86-36 ......: ..~

\\ (81/81) Audit Response. The report doi . '~l \ million e TRAILBLAZE

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TI Appendix K.. Report Distribution (U)f[]

r[] (U) Office of the Secretary ofDefense

11 Under Secretary ofDefense for Acquisition, Technology, and Logistics

Under Secretary ofDefense (Comptroller)

Under Secretary ofDefense for Intelligence

11 Assistant Secretary ofDefense for Netwerks and Infonnation Integration

11 Other Defense Organization Director, National Security Agency Inspector GeneraJ, Natienal Security Agency1] Inspector General, Defense Intelligence Agency

Inspector General, Nationa.l Geospaual-Intelligence Agency

Inspector General, Natienal Reconnaissance Office

II Congressional Committees and Subcommittees, Chairman and

Ranking Minority Member] Senate Subcommittee on'Defense, Committee en Appropriations Senate Committee on Anned Services] Senate Select Committee on Intelligence .

House Subcommittee on Defense, Committee on Appropriations

House Committee on Armed Services

House Permanent Select Committee on Intelligence]

(1.1)]

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]

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