Framework for Implementation: Job Process Reengineering (Other Written
Prod., 05/01/95, GAO/OIMC-95-8).

GAO described its strategy to implement job process reforms and the
roles and responsibilities of the project's key personnel. GAO noted
that the objectives of the project are to: (1) implement reforms in the
job management process that result in a reduction in average production
time; (2) quantify the expected staff time and cost savings resulting
from the process improvements; and (3) identify additional opportunities
that will dramatically reduce cycle time and reduce the staff-days
required to produce a product. GAO also noted that the Job Process
Reengineering Team is responsible for: (1) implementing the process
reforms identified by the Job Process Management Owners; (2) identifying
the barriers to change and developing a change management plan; (3)
developing and executing a communications plan; (4) executing an
activity analysis to determine how people currently spend their time;
(5) developing the transition plan and establishing performance
measures; and (6) identifying and prioritizing further opportunities for
process reengineering.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  OIMC-95-8
     TITLE:  Framework for Implementation: Job Process Reengineering
      DATE:  05/01/95
   SUBJECT:  Personnel management
             Cost control
             Human resources utilization
             Federal employees
             Strategic planning
             Work measurement standards
             Productivity
             Personnel evaluation systems
             Total quality management
             Internal controls
IDENTIFIER:  TQM
             
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Cover
================================================================ COVER



May 1995

FRAMEWORK FOR IMPLEMENTATION:  JOB
PROCESS REENGINEERING

GAO/OIMC-95-8



Abbreviations
=============================================================== ABBREV

  JMPO - Job Management Process Owners
  P&R - Planning and Reporting

============================================================ Chapter 0


   1.  INTRODUCTION
---------------------------------------------------------- Chapter 0:1

This document details the strategic framework and the roles and
responsibilities of the key teams and players identified in the
framework.  It will enable GAO to successfully implement the process
reforms proposed by the Job Management Process Owners and approved by
the Quality Council.  In addition, it will enable the Job Process
Reengineering Team to identify further reengineering opportunities
that may dramatically improve cycle time and reduce staff-days. 

Section 2 of this document describes the strategic framework.  It
details the objectives of the project, the structure and
interrelationships of the various teams and stakeholders, the time
frames for undertaking the projects, and the measurements that will
be required to monitor and evaluate the projects. 

Section 3 details the roles and responsibilities of the key players
in the project.  Where appropriate, the approach and the methodology
that could be adopted by the teams are also discussed.  To lay out an
implementation plan and methodology that will fit all situations is
not possible, however.  Much of the implementation plan will depend
on what the ï¿½end stateï¿½ process design looks like.  The plan then
will identify the steps necessary to bridge the gap and move from the
ï¿½current stateï¿½ to the desired "end state."

The work was performed with the assistance of Arthur Andersen LLP. 

F.  Kevin Boland
Chairman, Job Process Reengineering Team


   2.  STRATEGIC FRAMEWORK
---------------------------------------------------------- Chapter 0:2

This section details the objectives of the project, the structure and
interrelationships of the various teams and stakeholders, the time
frames for undertaking the projects and, the measurements that are
required to monitor and evaluate the projects. 


      OBJECTIVES
-------------------------------------------------------- Chapter 0:2.1

  -- To implement reforms in the job management process that result
     in a reduction in average cycle time to produce a ï¿½productï¿½ by
     100 days. 

  -- To quantify the expected staff time (and cost) savings resulting
     from the process improvements. 

  -- To identify additional opportunities that will dramatically
     reduce cycle time and reduce staff-days required. 


      PROJECT STRUCTURE
-------------------------------------------------------- Chapter 0:2.2

To enable the core project team to maximize its chances of success,
the following structure has been established: 

   Project Structure

   (See figure in printed
   edition.)

Central to the successful rollout of the identified initiatives is
the Job Process Reengineering Team.  This Team is responsible for
coordinating all the various initiatives identified by the Job
Management Process Owners (JMPO) and approved by the Quality Council. 

Section 3 provides more details on the roles and the responsibilities
of the teams.  Detailed below are high-level descriptions of their
roles. 

  -- Executive Committee - Made up of the organization's most senior
     people, the committee will be responsible for supporting the
     Team and helping the Team overcome organizational barriers. 
     This committee will meet biweekly, resolve any coordination
     matters, and make decisions necessary to keep the project moving
     toward the goals. 

  -- Job Process Reengineering Team - The Team will have primary
     accountability for implementing the process reforms identified
     by the JMPO and approved by the Quality Council.  They are
     ultimately responsible for meeting the objectives for reductions
     in cycle time and staff-years.  Central to this will be the
     integration of the initiatives.  The Team will monitor and
     compare the pilots and the rollout with the targets.  It will
     also be responsible for allocating resources among the project
     teams and the day to day coordination of those teams.  The
     members of the Job Process Reengineering Team will also
     participate in the project teams. 

  -- Process Champions - For any change initiatives to be
     successfully implemented in the divisions, they will require the
     full backing of the respective Assistant Comptrollers General
     (ACGs).  Therefore, each initiative will be championed by an
     ACG.  It is likely that initiatives in each key area (such as
     Job Design) will be grouped together and championed by one
     individual.  This does not negate the role of the Planning and
     Reporting (P&R) Directors or others who will still be heavily
     involved in integrating all the change initiatives. 

  -- Process Owners - The P&R Directors as the JMPO will continue to
     play an active role in the project.  They will be advised on the
     development of the initiatives as they are taken from concept to
     pilot and ultimately to rollout.  In addition, they will support
     the ACGs in championing the initiatives.  They will also be
     responsible for following up on the pilots ongoing in their
     divisions and provide feedback on the success and the
     effectiveness of the pilots. 

  -- Project Teams - The project teams will be responsible for the
     successful piloting and implementation of the initiatives.  They
     will support the Job Process Reengineering Team; their members
     will come from all areas of GAO, including the Job Process
     Reengineering Team, and thereby introduce diverse views and
     build ownership. 

Each team will be responsible for a particular subprocess such as Job
Acceptance and Staffing, Job Design, or Data Collection and Analysis,
which corresponds with the structure set up by the JMPO.  Initially,
the teams will design, implement, and integrate pilots and projects
based on concepts developed by the JMPO and approved by the Quality
Council. 


      TIME FRAMES
-------------------------------------------------------- Chapter 0:2.3

The Team's objective is to ensure that all current initiatives have
entered the full-scale rollout phase by January 1996.  To do this,
each initiative will be rolled out as soon as it has been
successfully piloted. 

Recently, the JMPO agreed to the title and the principle and minimum
essential requirements for the following initiatives:  Job Acceptance
and Staffing, Job Design, and Product Development and Division
Review.  The Confirmation Letter (Terms of Reference) and the
Expedited Agency Comments initiatives are approved and the pilots
have begun.  The Risk Assessment/Job Acceptance and Staffing team has
begun to develop the concept details for the pilot. 

The charts below lay out the potential time frame for rollout of the
projects.  As the data collection and analysis subprocess was not in
the original scope of the JMPO efforts, the full-scale rollout of any
initiatives in this area will not occur until mid-1996.  (Time frames
are not final for Benchmarking, Staffing, and Product Output
initiatives.)

   Timetable for Rollout of
   Projects

   (See figure in printed
   edition.)


      MEASUREMENT (GOALS)
-------------------------------------------------------- Chapter 0:2.4

The teams must quantify the time that each project is expected to
save.  The savings will be quantified in terms of both calendar days
and staff days saved through more efficient processes. 

Performance measures provide direction and help focus efforts on
attainment of goals.  In addition, they allow the organization to
benchmark its performance against that of other organizations. 

Effective performance measures: 

  -- are simple to understand and use,

  -- are few in number,

  -- are aligned with organizational strategies and focused on
     customer wants. 

The performance measurement system will

  -- support continuous improvement,

  -- monitor the critical steps in the process,

  -- help anticipate and prevent problems,

  -- change as the organization's strategy changes. 

Once the initiatives have been rolled out, these measures/targets
provide the basis against which further improvements may be
evaluated.  The diagram below illustrates the circle of continuous
improvement. 



   (See figure in printed
   edition.)


   3.  ROLES, RESPONSIBILITIES,
   AND APPROACH
---------------------------------------------------------- Chapter 0:3

This section details the proposed roles and responsibilities of the
key players in the project.  Where appropriate, the approach and the
methodology that could be adopted by the teams is also discussed.  To
lay out an implementation plan and methodology that would fit all
situations is not possible.  Much of the implementation plan will
depend on what the ï¿½end stateï¿½ process design looks like.  The plan
then will identify the steps necessary to bridge the gap and move
from the ï¿½current stateï¿½ to the desired "end state."


      EXECUTIVE COMMITTEE
-------------------------------------------------------- Chapter 0:3.1

Made up of the organization's most senior people, the committee will
be responsible for providing support to the Job Process Reengineering
Team and help it overcome organizational barriers.  This committee
will meet biweekly, resolve any coordination matters, and make
decisions necessary to keep the project moving toward the goals. 

The culture must change.  Having an Executive Committee to which the
Job Process Reengineering Team reports sends a clear message GAO-wide
as to the magnitude and the importance of the reforms required.  It
will lend credibility to the Team, foster participation by a wider
cross section of the organization, and enable the Team to cut through
organizational barriers.  In addition, it will allow for the rapid
resolution of any conflicts, thereby enabling the initiatives to be
implemented in the time frames established. 

The Executive Committee is composed of the Comptroller General, the
Special Assistant to the Comptroller General, and the ACG for
Planning and Reporting, the ACG for Quality Management, the ACG for
Information Management and Communications, the ACG for Policy, the
ACG for Operations, and the Deputy ACG for Human Resources. 


      JOB PROCESS REENGINEERING
      TEAM
-------------------------------------------------------- Chapter 0:3.2

The Team has primary accountability for implementing the process
reforms identified by the JMPO and approved by the Quality Council. 
It is ultimately responsible for meeting the objectives for
reductions in cycle time and staff-years.  Central to this will be
integrating the initiatives.  The Team will monitor and compare the
pilots and the rollout with the targets.  It will also be responsible
for allocating resources among the project teams and the day-to-day
coordination of those teams.  The members of the Team will also
participate in the project teams. 

Any changes in the job management process will have implications on
the training curriculum.  Therefore, the Training Institute must be
involved throughout the project, both on the Job Process
Reengineering Team and on project teams, where appropriate.  In
addition, because the proposed changes will have policy implications,
it will be necessary to get representatives from the Office of Policy
involved early in the process and at all levels. 

While the project teams will be responsible for individual
subprocesses or initiatives, certain activities are not confined to
project boundaries.  The Job Process Reengineering Team should create
the appropriate infrastructure necessary to support the project
teams.  This support may include providing skilled facilitators,
advice on appropriate methodologies, providing automated tools, and
assisting in planning and documenting the various efforts.  In
addition, the Team will be responsible for

  -- identifying the barriers to change and developing a change
     management plan;

  -- developing and executing a communication plan;

  -- executing an activity analysis to determine how people currently
     spend their time;

  -- developing the transition plan, including establishing
     performance measures; and

  -- identifying and prioritizing further opportunities for process
     reengineering. 


         CHANGE MANAGEMENT PLAN
------------------------------------------------------ Chapter 0:3.2.1

The objective in developing the change management plan is to
anticipate, avoid, and solve implementation problems that stem from
peoples' feelings about change.  To develop an effective change
management plan, one must first clearly identify the sources of
resistance.  To do this one may consider the following questions: 

  -- Why have previous initiatives failed? 

  -- What will be the employees likely reactions? 

  -- How do the performance measures/appraisal systems
     support/detract from the initiatives? 

  -- What barriers to change exist within the current culture? 


         COMMUNICATIONS PLAN
------------------------------------------------------ Chapter 0:3.2.2

A well-planned communication strategy is required to inform the rest
of the organization of the projects objectives. 

An effective communication plan will accomplish the communication
goals of an organization by providing accurate, useful, and timely
information.  Specifically, an effective communication plan will

  -- exploit existing communication channels in the organization;

  -- convey accurate and useful information to targeted receivers;

  -- present information in a timely fashion relative to certain
     events;

  -- provide feedback channels;

  -- replace the rumors which can hinder acceptance of change; and,

  -- foster commitment to the changes. 


         ACTIVITY ANALYSIS
------------------------------------------------------ Chapter 0:3.2.3

An activity analysis is a tool designed to identify how people spend
their time.  It will enable the project teams to determine whether
the demands being placed on staff are reasonable and therefore
whether the workloads expected as a result of any process reforms are
acceptable.  The analysis process can be a powerful and effective way
to understand key processes and interfaces.  It identifies key
activities, attributes them to functions or business processes, and
identifies specific activity drivers. 

The results of the activity analysis will also provide the basis for
quantifying the potential time savings. 


         TRANSITION PLAN
------------------------------------------------------ Chapter 0:3.2.4

The objective of the transition plan is to develop an ï¿½end state road
map.ï¿½ It is a translation of the high-level concept, supplied by the
JMPO, into the operating requirements for the process.  Michael
Hammer (Reengineering the Corporation) uses the Business System
Diamond to describe the changes necessary. 

Business Process (or Subprocess)

The business process should be focused on meeting or exceeding the
expectations of the customer.  To do this, the team should first
identify and describe the customer.  After doing this, the team
should address the following questions when planning the integration
of the initiatives: 

  -- What are the major subprocesses and tasks? 

  -- Where is the work done? 

  -- What are the process triggers and outcomes? 

  -- How does this business process link to other processes? 

  -- What are the primary customer impacts? 

In answering these questions, the Team can plan for the
implementation. 

Jobs and structure

Once the redesigned business process has been established, the Team
should then examine how the work will be done.  Any changes to the
process will affect the nature of the staff's jobs and potentially,
how staff are grouped.  The following questions should be addressed: 

  -- What new jobs are created? 

  -- What current positions are affected? 

  -- What are our preliminary training requirements and capabilities? 

  -- What are the fundamental structural implications? 

  -- Will we have individual or team oriented work? 

  -- How will we reward people? 

Management and Measurement Systems (Stakeholder Impact)

Changes to the business process will have implications for jobs and
structures, which in turn, may affect the management systems. 
Integrated processes typically give rise to multidimensional jobs. 
This could require that staff be organized more in teams, which could
affect recruitment, evaluation, and compensation.  Listed below are
some of the management systems that may be affected. 

  -- recruitment,

  -- communication,

  -- compensation and benefits,

  -- education and training, and

  -- career development. 

Values and Beliefs

The management systems (how people are recruited, evaluated, and
rewarded) will shape employees values and beliefs.  These are the
issues and concerns that GAO staff think are important and to which
they pay significant attention. 

To bring about process changes, individual behaviors must change. 
Therefore, both current and desired values and beliefs must be
identified.  In particular, it is important to surface staffs' values
and beliefs regarding the customer because new processes need to be
focused on that customer.  In understanding these issues, the Team
can identify the steps required to move people from the current to
the desired value system.


         PROCESS REENGINEERING
------------------------------------------------------ Chapter 0:3.2.5

Some of the initiatives to date, such as the Team Ag efforts and the
proposed risk assessment, can be considered as reengineering.  To the
extent that the Team identifies further opportunities for
reengineering, a more substantial methodology may be applied. 


      PROCESS CHAMPIONS
-------------------------------------------------------- Chapter 0:3.3

For any change initiatives to be successfully implemented in the
divisions, they will require the full backing of the division ACGs. 
Therefore, each initiative must be championed by an ACG.  It is
likely that initiatives in each key area (such as job design) will be
grouped together and championed by one ACG.  This does not negate the
role of the P&R Directors or others, who will still be heavily
involved in integrating all the change initiatives. 

The champions will be involved in the design, the pilot, and the
implementation of initiatives in their selected areas.  They will
also act as advocates, communicating the benefits of the reforms to
others.  They will be supported in this by their P&R Directors.  The
Process Champions, it is also hoped, will communicate informally with
one another. 


      PROCESS OWNERS
-------------------------------------------------------- Chapter 0:3.4

The P&R Directors as the JMPO will continue to play an active role in
the project.  They will be advised on the development of the
initiatives as they are taken from concept to pilot and ultimately
onto rollout.  In addition, they will support the ACGs in championing
the initiatives.  They will also follow up on the pilots running in
their divisions and provide feedback on the success and the
effectiveness of the various efforts. 

The Process Owners will help assure that the process reengineering
results can be implemented with a high level of confidence.  They can
act as the teams' critics, spokespersons, monitors, and liaisons.  In
a process-oriented organization, process, not function or geography,
forms the basis of organizational structure.  Every process continues
to need an owner to attend to its performance, especially once the
process reengineering is complete. 


      PROJECT TEAMS
-------------------------------------------------------- Chapter 0:3.5

The project teams will be responsible for successful piloting and
implementation of the initiatives.  They will support the core Team;
their members will come from all areas of GAO, including the Job
Process Reengineering Team, and thereby introduce diverse views and
build ownership. 

Each team will be responsible for a particular subprocess, such as
Job Acceptance and Staffing, Job Design, or Data Collection and
Analysis.  The teams initially will focus on taking the concepts
developed by the JMPO and approved by the Quality Council and then
designing, implementing, and integrating the pilots and projects. 
Teams will vary in size (3 - 10 members) and membership depending on
the complexity of the change being identified.  They will consist of
both full-time and part-time members.  Part-time members may include
representatives from the Training Institute; issue areas involved in
similar ongoing pilots; and specialty staff, such as congressional
relations staff. 

For those initiatives already identified by the P&R Directors, the
following steps should be completed: 

1.  Form project team

  -- Make sure everyone has the same objectives

  -- Include ï¿½insidersï¿½ and ï¿½outsidersï¿½

2.  Understand work to date

  -- Review ï¿½one-pagersï¿½ from JMPO

  -- Review work relating to initiatives

  -- Obtain briefings from key parties

3.  Define attributes of the proposed initiatives

  -- Objectives

  -- Scope:  defined boundaries (inside and outside)

  -- Process triggers

  -- Process outcomes

  -- Process flow:  graphic representation of scope from beginning to
     end

  -- Process structure:  graphic picture of scope relating processes
     to subprocesses

  -- Process rules:  governing statements

  -- Process performance targets:  desired measurable outcomes

4.  Design the pilot

  -- Develop detailed design

  -- Test and validate design with key stakeholder groups

5.  Pilot the process

  -- Operate the design in a pilot area

  -- Measure results and refine the pilot

  -- Plan for rollout

  -- Rollout the new process design

The project teams should also develop detailed work plans.  This is
best done by first setting goals and target completion dates and then
determining how to meet the goals by those dates.  Teams should pay
particular regard to critical program requirements, such as
information technology and human resources as well as change
management.  It should be noted, however, that whatever is in the
plan will change! 


*** End of document. ***