GSA’s customer agencies—those federal agencies acquiring services  through the Networx program—have principal responsibility for the  transition. GSA compiled lessons learned from previous telecommunications  transitions, including 35 lessons that described actions that agencies  should take during future transitions. Two of these lessons address  issues that are not appropriate for the current transition, leaving 33  lessons for agencies. The guidance sources did not address 7  lessons, including those related to agencies (1) bearing the costs  associated with contract extensions resulting from delays in their contract  selections, transition planning, or ordering; and (2) not assuming that a  transition to a new contract with the same vendor will be easier than a  change in vendors. By not including all lessons learned in its plans and guidance to agencies,  GSA limits agencies’ ability to plan for actions that will need to be taken  later in the transition. As a result, the risk is increased that agencies could  repeat prior mistakes, including those that could result in schedule delays  or unnecessary costs. Incorporate strategic needs into transition planning. 3. 4. Identify resources necessary for the transition. DOT, SEC, SSA, and USDA) had generally addressed parts of all  five practices and one agency had fully implemented one practice. The selected agencies provided various reasons for not fully adopting the  practices, ranging from their uncertainty due to delays in awarding the  EIS contracts and the lack of specific direction and planned contractor  assistance from GSA to implement the practices, to having plans to  implement practices later as part of established agency procedures for  managing IT projects. However, going forward, if the agencies do not fully  implement the practices, they will be more likely to experience the kinds  of delays and increased costs that occurred in previous transitions. In addition, one agency  had partially implemented this activity. ◒ Agency has partially implemented practice activity. Selected Agencies Have Begun to Establish Transition Objectives, Risks, and Measures of Success

To accomplish Practice 5—developing a plan that identifies objectives,  risks, and measures of success, and that approaches the process as a  critical project with a detailed timeline— the previously identified transition  planning practices state that agencies should complete three activities. The five agencies we reviewed had begun preparations for the transition  to a new government-wide telecommunications contract. Four of the agencies (GSA, DOL, SEC, and SSA)  provided written comments on the draft report, while two agencies (USDA  and DOT) provided comments via email. SSA disagreed with our remaining two recommendations. Additionally, SSA disagreed with our recommendation to identify legal  expertise and utilize a structured transition management approach. Appendix I: Objectives, Scope, and Methodology

Our objectives were to determine to what extent: (1) GSA’s plans and  guidance to agencies for transitioning to EIS incorporate lessons learned  from prior transitions, and (2) selected agencies are following established  planning practices for their transitions. Based on our assessment, we classified the status of a lesson learned as  “fully addressed” if the lesson learned appeared in at least one planning  and guidance source or if all of the concepts described in a practice were  found collectively in multiple guidance sources; “partially addressed,” if  part of the lesson learned appeared in at least one document; or “not  addressed,” if the lesson learned did not appear in any of the planning  and guidance sources. The resulting five  departments and agencies’ selected for review were the U.S. Department  of Agriculture; U.S. Social Security Administration; Department of  Transportation; Department of Labor; and U.S. Securities and Exchange  Commission. Appendix II: Summary of GSA Lessons Learned

Based on experiences during previous telecommunications transitions,  the General Services Administration (GSA) identified 96 lessons learned. Table 7 describes the 35 agency-focused lessons learned identified by  GSA during previous telecommunication transitions and the extent to  which each was addressed in GSA’s EIS transition plans and guidance.
Why GAO Did This Study

GSA is responsible for contracts providing telecommunications services for federal agencies. Transitions involving previous contracts faced significant delays resulting in increased costs. Because GSA's current telecommunications program, Networx, expires in May 2020, planning for the next transition has begun.
GAO was asked to review preparations for the transition. This report addresses the extent to which (1) GSA's plans and guidance to agencies incorporate lessons learned from prior transitions, and (2) agencies are following established planning practices in their transitions. In performing this work, GAO analyzed GSA lessons learned and transition guidance. GAO also selected five agencies—USDA, DOL, DOT, SEC, and SSA—based on size, structure, and Networx spending. GAO then reviewed the agencies' documentation to determine how they followed five planning practices identified in previous GAO reports.

What GAO Found

The General Services Administration's (GSA's) transition guidance to agencies addressed roughly half of its previously identified lessons learned. GSA identified 35 lessons learned from previous telecommunications contract transitions that identify actions that agencies should take. In transition guidance released to agencies, GSA fully addressed 17 of the 35 lessons. Two lessons from previous transitions were not appropriate for the current transition. GSA partially addressed an additional nine lessons. Seven lessons were not addressed at all (see figure). For example, GSA's guidance did not address the previous lesson that agencies should not assume that a transition to a new contract with the same vendor will be easier than a change in vendors. By not including all lessons learned in its plans and guidance to agencies, GSA limits agencies' ability to plan for actions that will need to be taken later in the transition. As a result, agencies face an increased risk that they could repeat prior mistakes, including those that could result in schedule delays or unnecessary costs.
Selected agencies—the Departments of Agriculture (USDA), Labor (DOL), and Transportation (DOT); the Securities and Exchange Commission (SEC), and the Social Security Administration (SSA)—have yet to fully apply most of the five planning practices previously identified by GAO as key to a successful telecommunications transition. The practices encompass: (1) developing inventories, incorporating strategic needs into transition planning, (2) incorporating strategic needs into transition planning, (3) developing a structured transition-management approach, (4) identifying resources necessary for the transition, and (5) establishing transition processes and measures of success. SEC fully implemented one practice, partially implemented three practices, and did not implement another. The other four agencies partially implemented each of the five practices. Agencies provided various reasons for not following planning practices, including uncertainty due to delays in GSA awarding the new contracts, plans to implement practices later as part of established agency procedures for managing IT projects, and a lack of direction and contractor assistance from GSA. If agencies do not fully implement the practices in the next transition, they will be more likely to experience the kinds of delays and increased costs that occurred in previous transitions.

What GAO Recommends

GAO recommends that GSA disseminate guidance that includes all agency-directed lessons learned. In addition, GAO recommends that USDA, DOL, DOT, SEC, and SSA complete adoption of the planning practices to avoid schedule delays and unnecessary costs. Five agencies agreed with all of our recommendations. SSA agreed with two recommendations, partially disagreed with one, disagreed with two, and provided updated information. GAO stands by the recommendations, as discussed in the report, and revised the report based on SSA's new information.