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INSPECTOR GENERAL . .
DEPARTMENT OF DEFENSE
4800 MARK CENTER DRIVE
ALEXANDRIA, VIRGINIA 22350-1500

MAR 2 2 2016
Ref: FOIA-2013-00686

Mr. John Greenewald


The Black Vault

Dear Mr. Greenewald:


This is in response to your September 9, 2013, Freedom oflnformation Act (FOIA)
request for a copy of all documents pertaining to the DoD IG' s investigation of the NSA
TRAILBLAZER Program. We received your request on September 11,2013, and assigned it
case number FOIA-2013-00686.
The Office ofthe Deputy Inspector Generalforlntelligence and Special Program
Assessments conducted a search and located the enclosed report. I determined that the redacted
portions are exempt from release pursuant to 5U.S.C. 552(b)(1), which protects from
disclosure of national security information concerning the national defense or foreign policy; 5
U.S.C. 552(b)(3), which coyers information specifically exempted from disclosure by statute;
and 5 U.S.C. 552(b)(5), which pr~tects inter-agency or intra-agency memorandums or letters
which would not be available by law to a party other than an agency in litigation with the
agency.
If you are not satisfied with this action, you may submit an administrative appeal to the
Department of Defense, Office oflnspector General, ATTN: FOIA Appellate Authority, Suite
1OB24, 4800 Mark Center Drive, Alexandria, VA 22350-1500. Your appeal should be
postmarked within 30 days of the date of this letter, should cite to case number FOIA-201300686, and should be clearly marked "Freedom of Information Act Appeal."

Si~w~
Catherine M. DelPrete
Supervisory Attorney .
Freedom of Information, Privacy and
Civil Liberties Office
Enclosure(s):
As stated ,

3253346

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Report 05-INTEL-03

December 15, 2004


Audit Report

OFFICE OF THE INS~ECTORGENERAL .

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OF THE
DEPARTMENT. OF DEFENSE

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. Requirements for the TRAILBLAZER


And THINTHREAD Systems (U//FffiJO)

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DEPUTY INSPECTOR GENERAL FOR INTELLIGENCE

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'ftlfs dtn::umeat z:onlaln:s !nfm ma!lmr exempt fl osn ma12datcry diselssttre a~teler tee IZl'eeEiem e~
fftfeflfti!MeB ..... e{. =Riis !'epert ea&ts:iHs eertabt ttftelassifted wformafion relatiHg to the OJ ganb:aticm
and ~aeUe:a et: Ule NaHeaal Sesm:lf3' Age:a1!3' Uta~ Hlaj' lie pi'eteete!l ll the Natisaal S111c111'lt5t Act gf
19591 as llfltendeli [59 eDited States ode .46! (note. R:epr edttcti!lfl: or remo alef11ages is

!UOMbtfed. Safegtlards mtlstbe faken to preent pttblieallou or imp10ptx disdosntc of the

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, Additional Copies (U}

contact Mr. Thomas F. Gimble at

(703)60~(DSN

Suggestions for Audits (U)


i

(U) To suggest ideas for or to request future audits or evaluations of Defense

intelligence issues, contact the Office ofthe Deputy Inspector General for
Infelligence'at (703) 604-8800 (DSN 664-8800) or fax (703) 604-0045. Ideas and
requests can also be mailed to:
.
.
(U)

Office of the Deputy Inspector General for Intelligence

Attn: ExecutiveOfficer

Inspector General of the Department of Defense


400 Army Navy Drive (Room 703)
Arlington, VA 22202-:4704
(U)

Defense Hotline (U)

(U)To repbrt fraud, waste, or abuse, contact the Defense Hotline by calling

, (800) 424-909.8; by sending an electronic message to Hotline@dodig.osd.mil; or


writing the Defense Hotline, The Pentagon, Washington, DC 20301 ~ 1900. The
identity of each writer and caller is. fully protected.
..

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Acronym(U).
(U) NSAJCSS

National Security Agency/Central Security Service

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INSPECTOR GENERAL

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DEPARTMENT OF DEFENSE
400 AI=IMY NAVY DRIVE

ARliNGTON, VIRGINIA 22202-28S4

December 15, 2004


MEMORANDUM FOR DIRECTOR~ NATIONAL SECURITY AGENCY I
CENTRAL SECURlTY SERVICE (U)

CHIEF~

SUBJECT: Audit of the Requirements for the TRAILBLAZER and THINTHREAD


Systems (Report No. OS-INTEL--03) (Project No. D2003AL.-0100)(U/IFOUG)
(U) We are providing this report for review and colllntent. This ;1udit was
initiated from a Hotline complaint. We considered management comments on a draft of
this report in preparing the final report. Management conducted a security classification
review of the draft report.

(U) OoD Directive 7650.3 requires that a1J recommendations be resolved


promptly.
Management nonconcurred with Recommendations A.l. and A.2.
Management partially concurred with Reconunendations A.3.t B.l., B.2., and B.3. As a
result of management comments, we revised Recommendations A. 2.and B.l. We request
that the Director. National Security Agency/Central Security Sen-rice provide additional
comments on all reconunendations by January 15,2005.

!!~t

extended t o
staff. -estions
eshould be
t
K for the report distri utton. . e team members are
{703)6~or

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~~')- ~.lt!t.
Thomas F. Gjmb1e
Deputy Inspector General f9r

InteJJigence
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flECU.SSlfY9U.2929111;

Special Warniag
'fhia ducuweat cmtlitnl informttiol:\ cft::!Upt frem mtidatery Ei!seleslfFe udtr t!le Braclom
of Info1rnation Aet. This rep crt eo11biti eel'fa&:t eelulified iBfuHMtlaa Fila~ tAe
el'lP'!rtlea a111i fqedaa ef the N~BtlSeeufi~ :Ageaey that JBif be pNtfeted: I:Jy l:&:e Natio11:ti
Seealicy Act of 2959, as amen~ (56 United St:ater; Code 482 (.ll:cfeH. Repr6dllede:~~ er l'tmevti af
Pice& iB pNJJHllltt!EI. SafegaHds murt lle1ake;g to pr:e.e:a.t pubUcatJcu or improper rlh:dovm~ of the
f:efaAB:tiaa ill this uport

to

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Office of the Inspector General of the Department of Defense/


j

Decerub~r 15, 2005

Report No. 05-INTEL-03

(Project No. D2003AL-OIOO)

''

Requirement~ for the TRAILBLAZER and THIN~AD

Systems (U)

Executive Summary (U}


co

(IF~ M Who Should Read This Report and Why? A~uisition decisionkakers at the

. National Security Agency (NSA); the designated NSA Milestone Dec;.'sion Authority for
the Under Secretary of Defense for Acquisition, Technology, and Logistics; and
personnel in the Office of the Assi

Inte . tion should read this


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I (U/Jll'ffi:K,)fBackground. We perfonned this audit in response to a Defense Hotline
/ complaint, which alleged tpat NSA actions in the development ,9fTH~READ and
f 1RAILBLAZERresulte<j'~ fraud, waste. and abuse. The spec~fio allegations were: (1)
i TRAILBLAZER devel9pment wasted! . .

~fdo1Iars; (2) NSA


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disregarded solutions tour ent U.S. national securi needs 3 NSAmooified or

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f ! . //(u!JlT6YQ) TRAILBLAZER. TRAILBLAZER is an Acquisition Categozy-J.A. progl-am
I !
/r...:::' to acquire, through a series of spiral developments, an integral:6:: t.o nmVfde the
f / 1Y' much-needed mission capability a~t the Global N~_ork. i
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e~.Pe1 have assessed lhe~~tuation and:~ co~fident in the
ach NSA has taken. The

ncurred Wim'th~ recommendatiQ

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lwe;~~~t that the Director.


NSA/Chief, Central Security Service provide additional comments to this report by
January 15, 2005. See the Findings section ofthe report for a discussion of management
comments and audit responses~ Appendix J for a detailed audit response to the
management comments, and the management comments section of the report for the
complete text of the comments

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Table of Contents (U)


(U!tFOUOt-

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Executive Summary

I \\,~:~. .'".

Background

Objectives
Findings

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Appendixes

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Prlor Coverage ,

B. TRAILBLAZER

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39
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62
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82

88

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

113

National Security Agency, Central Security Agency Conuitents

114

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(U/1Pffi:19.)

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(U) Background

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(U) National Security Agency Mission and Planning Guidance. The mission

of the National Security Agency/Central Secmity Service (NSA/CSS) is to


provide actionable Signals Intelligence to U.S. decisionmakers, from the national
to the tactical level, while protecting the nation's vital information from attacks.
The urgency of the NSA/ CSS mission is greater than ever since the September
-11th attacks and the Global War on Terrorism.
.

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


Intelligence guidance stipulate the need for ''!l globally vigilant intelligence
system that can provide early strategic warning ofcrisis and detect threats" that is
supported by capabiliti~ such as an "information superiority backbone.,

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,___(SttSI)._TR.AJLBLAZERis-~
~)or acquisition program, which
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started in FY 2000 and is schedUled for tmtial operating capabllity in FY 2009, to
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acquire an integrated system that is composed largely of commercial technology
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to provide the much-needed mission capability againSt tbe: global networl: through
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a series of spiral developments. The TRAILBLAZER system wiU deliver
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~ilY.IiiSirucffioii1nr:~~.:r.:.z:-,a:annti the Clinger Cohen Act of 1996. Specifically, these

regulations provide the framework for the acquisition of major automated


information systems.
(U) DoD Directive 5000.1, "The Defense Acquisition System," May 12, 2003.
DoD Directive 5000.1 establishes the management process by which the DoD
provides effective, affordable, and timely systems to the usm. DoD .
Directive 5000.1 states that all acquisition professionals shall continuously
develop and implement initiatives to streamline and improve the Defense
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 apd cost and encourage teamwork.

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(U) DoD Instruction 5000.2, "Operation of the Defense Acquisition System,"
May 12, 2003. DoD Instruction 5000.2 establishes a management fra.niework for
translating mission requirements into stable, affordable, and well managed
acquisition programs that include weapon systems and automated information
systems, and highly sensitive classifi~ cryptologic, and intelligence projects and
programs. Instruction 5000.2 states that, 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 shall
include robust analyses that consider affordability, technology maturity, and
resp<~nsiveness.

(U) Clinger-Cohen (Information Technology Management Reform) Act of .

1996. This act requires that heads of executive agencies develop and use best
practices in the acquisition of information technology. The process of an
E\Xecutiv'e agency shall include minimum criteria to be applied in considering

whether to undertake a particular invesfment in information systemst 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 infonnation systems investment projects.
(U) NSA/CSS Circular 5000~ "Acquisition Management," January 9, 2001.

The circular implements the principles of DoD Directive 5000.1 and DoD .
Regulation 5000.2-R within the NSA/CSS. It establishes basic objectives,
policies, proCedures, and responsibilities for acquisition management. The .
circular states that for acquisition management within the Defense Cryptologic
Program, NSA should address interoperability between existing and future
Service tactical Signals Intelligence systems, connectivity between tacti~ and
national systems, consider applicable technology that may satisfy the requirement,
and possible duplication of ongoing efforl

(U} Objectives

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(U/IFOOO'J Management Comments. The NSA management stated that the

draft report did not include significant information or included wrong or


misleading information.. The complete list of management comments is in the
Management Comments section of this report.
23

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{U/iirotio}.Audit Response. We obtained, reviewea, and analyzed many
documents and we interviewed several NSA and contractor personnel to form the
cbnclusions in this report. We included all infomiation relevant to support the
report findings and recommendations. Many people we interviewed asked not to
be identified for fear of management 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 respol1Se to each management comment.
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(U) Recommendations, Management Comments, and Audit

Response
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(U) A. We recommend that the Director,. National Security Agency/Chief,
Central Security Service:

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(U) Congressional Concery1s on Digital Network Exploitation

(U) The National Defense Authorization Act for FY 2002 stated that:
(b) (1)

tfS/iSI) The NSA has. clearly made gmat strides in sc:ek:ing to


traosfom itself in many areas. However, the NSA eppears to have
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(Sf/SI) OJ:1 March 24, 2000, the Director, NSA signed the TRAILBLAZER 1
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netwcnk. ~:!;with an estimated development oost of

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as to respond to the opportunities and challenges


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(Uh'FOUO) Ensure the execution of a new NSA program transforming


the U..s. Cryptologic System exploitation of the global network.. Map
detailed digital network exploitation mission requirements to a
ccyptologic architecture and implement them; and

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and Au(litResponse
(U/Jli'Olfet Management Comments. NSA management referred to several
statements in the report that did not include all referenced documents and that
some paragraphs eontained wrong or misleading information. The complete list
ofmanagement comments is located in the Management Comments section of
this report.

(U/./li'Oti&) Audit Response. We obtained, reviewed, and an.aJyzed many


documents to form the basis for th;-conclusions in this report. We also
interviewed sevei"al NSA and contractor personnel, many of whom asked not to .
be identified for fear of management reprisal.. We gathered information from .
many sources to support the finding. Pamgraphs frequently_ contain infonnation

from several sources to reinforce conclusions. See Appendix J for a complete


audit response to each management comment.

(U) Recommendations, Management Comments, and Audit


Response
/(b> <1}

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study before fully concurring. The Program Executive Office is establishing an

35

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(U/~) independent review team to complete the study before Milestone B.


scheduled for December 2004, because the study will have an effect on both the
cost and schedule for Milestone B.

2, (U/IF'Otre)-Provide the results of the external assessment to the


. TRAILBLAZER Technology Demonstration Platform Milestone Decision
, Authority for use in making the ~estone B decision.

.: (U/~ Management Comments. The Director, National Security

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


currently scheduled for December 2004.

i independent assessment is

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


i Agency/Chief, Central Security Service concurred; the eoncurrence is based on
; completing the assessment requested in Recommendation B.l .We request that
the National Security Agency management provide additional comments in

response to th~ final report identifying NSA plans to eliminate the cost arid

.:schedule risks for completing the assessment. ,

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AP;pend1x A. Scope and Methodology (U} \~\'\\


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(UttFffi:J'O) We reviewed documentation dating from November 2ooQ i~~gh

October 2003 including background information, mission and operatiqital n~


statements, concepts and operational requirements, and contracting ano 'budget\..
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conducted interview.
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Support Personnel assisted us during the audit. The Technical Assessment
Division assisted in the analvsis ofNSA acquisition]

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~ Office has identified several higlHisk areas in DoD. This-report provides

.,coverage of the Infrasfruclure Inefficienciesand Information Technology


Investments high-risk areas.

(U) Prior Coverage


(U/~During the last 5 years, the Inspector General of the NSA issued one
report on TRAILBLAZER that discussed improperly based contract ~st
incr~, non-c.oofonnance in the management of the Statement ofWorlc, and .
excessive labor mtes for contractor personnel. No prior coverage has been
:conducted on the NSA THINTfi.R1MD Program during the last 5 years..

38
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Systems Engineering and Teclmical Assistance Contract," September 30, 2004

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\ \
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(V) RecoDliD.endations. See the recommendations for THINTHRBAD Findings I \


3 through 7 to address these. risks.
\i Ii

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(U) some THINTHRBAD files could not be viewed to pursue corrective

actions.
75

'I'm' SIBCRETIJQ9!\HNT/li9i91123

86-36

TOP SBCRET/tsOM:IWI'l.'lQl"llll
.:

: //'--;..__---------------,..--'----------....J
<.Finding 3 Discussion

.tl

/:,

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

l!

The existing documentation was insufficient to support the planned deployments.

;'

/l
/

/'
.i

programmatic leveL

///~

'l~~k;;.f~~L. 86-~6
.... .:..

~ lb;~:-.. a..~~~::::.:..::.

(U) A d~ed schedule including all activities related to the system and

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


high-level schedule containing the cbronology of deployment was
developed. but a detailed schedule was essential for proper resource
management, costing, and prediction.

'

.....

(U) THINTHREAD did not have a clearly stated, documented set of

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


difficult to communicate infonnation aliout THINTHREAD at a

/l

. inefficient and could 1~ to a significant increase in user error.


Difficulties using the tool can also lead to an increase in support calls that
drained project resources.
.
..
.
.
i

//

>

...

(U) There was no user documentation on .h.ow to use the tool. That was

~""'"'"'>,~.~-.:.:~---=:.::-=.::.:::::::::;.,~- QJ) No installation and maintenance documentatio~ was completed for


'-.,, ~"::;::~~---~tt.e.:.~~ perso~el~ although th~ team. was W<?rking ":ith the pilot site
>~~
to develop-~att.Q.n docuv:entation. I.ack Qfm:;taUauon and

-..

',,-,____.

-.........___

:
"-

I,

~::..-::._........_ maintenance doc:Umeiifa1ioEL



~1----'-----.
--..~,;...,~---~---------.;.._---.

. I

'

>-..,___

-..

................

.---

________;__.
'

-._,1

(U) Th was-no operational support docunl.~tano-nl....-.-:.--.-.---.

Lack of support dOcum. ~~tion could adversely affect timely c:otTection of

! :~1emslaudooplfeadtc! .

J.

(U) The effects of minimal documentation cOuld be overcome if an integrated


team accomplished the development and deployment ofTHINTHR.EAD

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'tbJ (3}-l?.L. 86-36


\ ...
\

''
\

(U/!FfWQ). Recommendations. Develop necessary documentation. ~at would


necess.itate an increase in the personnel devoted to documenting the system, but is
essential to the successful deployment and operation ofTiliNTI:IREAD. 'fl).e lack
of this documentation presented a serious risk to the successful deployment of
THINTiiREAD.
.
.
\
'\

(U) Finding 4 Discussion

J
J
J
J

.
\

(U//FSUQ)_Historically, the 'IHINTIIREAD Program Team focused on


the oto
d onstration at the ilot site. The
's sco did not

VJ/~)~orl(.

.,

entando~uon

were not Identified


The
relationships between work roles throu out the system's life cycle were
not defined. Tlie authorities for each work role had not been identified.
The organizational structure set forth by the THINTHREAD Program
Team focused on system development, and did .ttot address system

77

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TOP SRCR:ET/Ki'9PtHNT/f29291123
....

CU/tl<'WQ> d~1oYm.~tl

/.)

___,.< .

/~:~:::::::1
'(bT~::.~=;~-L.

86-36 .

/- . . . ..

> .

,.

..
....

coordination through the various stages of deployment.

(U/~Reeomm~ndations. The findings-presented a serious risk to

successful deployment ofTHIN'IHREAD. To mitigate those risks, the following


recommendations were suggested.

(b)[3l-P.L~
(b) (5}

....

addi~onal"Work roles necessary for deploynient activities.

(U) THlNTHREAD did not identify aU theorganizationsrequiring

ti

.

lThe THTIIl'fHREAil Program '!'earn was defiriirig the

....

$6-36

-.. --....-..._
~._

(lJ) Finding 5 Discussion

'

..

(UJ/POUO) The customer service and user support processes for TI:iiNmREAD
.were manually in~ensive and directly involved the technical staff.

(Uill'tlBQ)Theql>llljly~~D!lT~g
_______TH:JNmREAD::w...aruiconslstent..- . S o m t e l V i e W by

tb"i13i'-f..L:'-a 6"'7.3 ;/=-:--- .. Test, TechnologyandEvaluati~~ \eam VftriVeathel'

--=.,...,.=--...,.=,.=-=:.---- ~~m Teaj to b~ unresponsive m g~era.I customm: support, while

---!-:::_--=---

_bxP!llenced good responsiveness to theu-requests for


ttions or mOOifications!
I

(U//F6UO) There was no fom1al trouble ticket mechanism in place. If a


user or operator had a problem with THJNTHREAD, he contacted
someone on the THINTHREAD Program Team. This contact depends on
personal acquaintance. because no list ofTHINTHREAD personnel .was
readily available, and there was no mechanism to locate the proper . . .
TIIlNTHREAD contact. Similarly, the status of the responsr;, to a request
could only be learned by personal contact.

(UllPOfj(J} There was no formal mechanism for managing extemally


generated requirements, to include submitting a new requirement to
THINTIIREAD or for folJowing the progress ofthe work.
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'fOP SECRET#eOlfHti 179'29291123

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0

(U/IffiYlJ) A. list of Web interface functionalities p~~posec\

was not incozporated into THINTHREAD.

0
0
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0
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]
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]
]
]

_'-----'

(U/..j!Fgt10) R_ecomrnendations. The findings that led to the reco~~datjons


":~na.: nrev~ted the successful deployment ofTIIINTH~~
fThe recommendations w~e m~s:.JoJmp,ro...,_-<.Ly=e...,tb..,.e,____ ____, .
___ o e ctency ofTHINTIIREAD aft~..lt-wllS'tilp]P.yed[
_
.
1

/1
.......- ::;

/ .----:~/A ..
_...._.... _,.....,-

. ./ ...,. -

. .

@Jnstitg_t~an-automafed, formal THlNTHRBAD customer service and

__. -u:senUpi>ort process

~~~~~:~~~~,~~~_;::~~-::oo
{b) {3)-E'.L. 86-36

"<::~..~-- ----~

._____---~

---------:.:~:__:-::~~------------

- - . -

(JJ//fOU~ Acquire and JLSe a trouble ticketing tool,

which can manage

"-.:~"::;:~-~ --------~xternal1~generated r:uirements as well aS s=:problems. This tool


-......:::...;-~--,
_
sliouldJ __
__
.
__ll'he THINTHREAD

-.......0':::::::--" . Program earn should dreSs 6@1-priorlty requiielllents that fit within
'-...,___ '<:::::---...the program scope.

'-'-.~~IP"
"':"" r address Web interface functional enhancements
--req?est"ed!. ,. . . . .____ '-__ -.

..........
'
(U/~Address.tlie-lac.k
Program
for maintainin
haniile more ...

Team

depth in the THINTHREAD

THINTHRBAD is scaled to

(U) Finding 6 Discussio'-n_ _ _ _ _ ____.


(Ufffi'Otfa) There was no process for controllin~ and measuring operational,
programmatic, and technical performance effectiveness ofTIIINTHREAD, once
deployed.

(U/IP'OBG) TIIINTHRBAD did not have a clearly stated set of system

specifications or a method to validate the TiilNTHREAD concept or


performance results. Thus, there was no wa.y to detennine if the system
79

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to

(eU//FOUe}was successful or ifit failed, which may Iciul confusion in


stakeholders' llilderstanding of the success ofTHINTHREAD.

(U/~INTHREAD had mechanisms for assessing progress and


. status within the system development phase. However, there were no
~ systematic, consistent mechanisms for overall program measurement,
which included identifying test criteria, establishing program schedules,
and documenting a system baseline to address progress. No feedback
mechanisms had been identified such as risk management or contingency
planning.

'(

(U/Ifffiffi) Aside from schedule control, there weie no too1s to measure


progress towards program objectives because there were no formalized
program objectives.

(U/!Pfffif}) THINTHREAD did not have Standards ofPerfonnance

established for personnel developing THINTHREAD. If future


THINTHREADdevelopment crosses organizational groups, a common set
of Standards ofPerfonnance for personnel may become necessar,Y.
...
(U//FeYO.) There was no configuration management process. which oould
pose a risk when reporting system problems and correcting th~
I
In addition, the lack of a configuration management PI"Q~could cause
difficulty when upgrading or deploying versions,pdalso make rollback
extremely risky.

...>---~

:.~

....

h=

'

Vlb a:tomated.. ~ . .

{UI!Ffff::JfiJ.) The fault or waming.def~on


necessary reactions and r~nses were not.-

software provided .~.simple way_ to-checksta o vanous s


.
parametets through a WJntefface. However, when an operator
. recow_ize3apro_}le;m;-~ m1;15t actively initiate correctiv~ measures..

..

_...Somefunesthnt action1s a sunple matter, such as restarting a process. At


' . ~/.......- qthertimes, physical hardware must be changed. No corrective action
_>/;......,------could be executed ifan operator was not present to initiate a corrective
.-::..<
action.

,~;~::::.~)-___:_!
<:::~~~:::~~;,,:-~-------------:---.._ .
'<~"::..
....-~''::-.

--------------------------1-

1-.

---..-wJ.IFOUO) THINTHREAD luid no established process fo:r ~ging


reqiilt'emen~

'

<~>=~,
'.

.: ,

.:~::::....

' .

':....~~----~

'

... :----~:

e recommendations were :Dla.de.tQ.l.UlP!Qve the

'..:._

.___~___.

e ency of1HINTHREAD after it was dep1oyedl


The following is a list ofrecommendations

.
1

-Wl!F..QE-01 Develop processes and acquire automated tools based on


ciearlx stated specifications for controlling and measuring the .

pro~jtic. onera.tipn.4 and technical perfonnance ofTHINTHREAD

depToymebj

.J

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(U/IFOl:JO) Re~ommendatiolis;Thejindings that led to the recommendations

.., __ -.::::::;..._ would not have revented the.successfu~aeploY-I!!_ent of~ to

1
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warning detection system)../

//

..

. \ 'I

(U~ I;stablish a requirements management process for


that is linked toj .
.

UJtEAD

nnelwas

e number and skill mix ofTHINTHREAD

- .~--~-----

----

---,...-.==:=~

ere were s o
s Wl
e numbers an skiDs of ~nnel required for
lbli3)-P.L. SG-36=----pJanning-ande:tecuting-installatiO~
there was a Jack Of
--aocumfientatition, I!rQ..~~ ~e ndecessl89' mamdtenhanedceul~d h~elp .declies~ s:uppo
t.,_ rt,
.
..............
con gura on managemefh, aa -p annmgJYl sc
mg.
. ye1y.
----... ,-...__ , sltortromjngs jeated a serious risk to successrul ~In:pletio 1...-:

yso;

--

11
nrse
---......1.

(U/I.F6U~ Recommendations. The finding presented serious risk to successful


deployment ofTH1NTHR.EAD. It was recommended to continue to identify and
~,!'~J:jb'""and twos ofsJd!led::onneJ ~
fct

=itm

{3)-P.L. 86-36

(U)'Finding 7 Discussion

iJ . . . . _ -. . ._
il

~~\

{U/~Automate reactiqns'-~d responses to the existin, fa~lt and\

0
0

...:<Cb)

(U/fFOUOj'Deveiop Stand~ ofP~o~ance (iffuturent~AD


development crosses orgaruzation~groups).
t \
\

0
0
0
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r

../

{U/IfOUO} Acquire a commercially available configtli-atio~i ~ntrol


system to enable versiorung, rollback, and configufation mdf.agement.
'The system should interface with the trouble t;icketing syst~ an~ the
requirements management system to provi9e~full traceabilitY.\ \

.D

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Appendix H.

1
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(b) [1)

(b) (3)-P,L. 86-.36 .. ;

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(U) Introduction

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(U) ~eeds Analysis Rev~ited

\
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86-36

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(b) (1)

(f)
0.

(3) -P. L. 86_:,-~.:._

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(U) System Capabilities Overviews

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(b) (3)-l'.L. 86-36


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.tbJ {3) -t'.L. 66-36


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s2sss4e .

(b) {1)
[b) (3)-P.L.

TOP SECRETlJ0~HNT/12~91ll~, -..,.


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-

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(U) Optimal System

'

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DOCID. 325334,

(b) (1}

86-36~

(b) {3}-P.L.
....

'fOP SECRE'f#8r.HNTH!62,11~3 -.. .,,


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l

..

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\
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.;

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..

(U) Cost Analysis


~~-,-{o)t-3-~,.~.L. s6-36
foltowirt"fihy;;thetical scenari:~-fi};;ttat~lliow~

..

. . . \

. . I

ayproduce a more effective result in terms of th compleXIty and cost.


A ew as umptions apply:
.
.
\

..
....

'.'I

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3253346
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l'OP SECRE~/:tCOffBN!f/l.2029ll~~~' (3) -P. L,

0
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(U) Conclusion
,.
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86-36

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Appendix I. Glossary (U)

NCLASSJFJEO//FOR OFFie!J"'<L USE


BY COMPJIATIOt'll WHEN ASSO
JVITH REST OF DOCUMENT

1
1

.(U)

r--;---------:------:-----------:----:=~ .86-361

,.

1
1

Consultative Committee for International Telegraph and Telephone (CCITT).

Consultative Committee for International Telegraph and Telephone is the International


organization responsible for the developmentof commUnications standards. Now called
the International T~lecor;nmunication Union Telecommunication Standardization Sector.
(

(b)(3)

.'

1
1
1
.L86-361

1
1

1
(1J)
)

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rpociD: 3253346
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(U)
{b){3)-P. 86-36

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\
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l.

I
i
\

Electronic Industries As.soclation (EIA). A group that specifies electrical transmission I


standards. The Electronic Industries Association and Telecommunications Indusiiy
l
Association have developed nutnerous well-lcnown communications standardst including I
Electronic Industries Association and Telecommunications Industry Association -232 and I
Electronic Induslries Association and TelecollllJWDicatlons lndusby Association -449.
\I

. \I

(U)

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b)(3)-P. ', 86-36 .

'

\.I

\i
International TelecoJl1Dlunlcation Unfori Teleiommunication Standardization
Sector (ITU-T). Iriternational body that develops worldwide standards for . '
telecommunications technologies. The International Telecommunication Union
Telecommunication Standardization Sector carries out the functions of the former

Corisuttative Committee for International Telegraph and Telephone.


. Int~mational Organization for Standa~dlzation (ISO). International or~tion

.1

\
\

that\

is responsible for a wide range of standards, including those relevant to networking. The \
International Organization for Standardization developed the Open System
~
Interconnection reference model, a popular networking ~eference model.
\

.I

(U)
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(b)

{3}-T

86-36

Institute of Electrical and Electronics Engineers (IEEE) 802.3. Institute ofEiectrical


and Elecftonics Engineers LAN protocol that specifies an implementation of the physical
layer and the MAC sublayer of the data link layer. Institute ofEleclrlcal.and Electronics
Engineers 802.3 uses Carrier Sense Multiple Access Collision Detect access at a variety
of speeds over a variety ofphysical media. Extensions to tbe I Institute ofElectrical and
Electronics Engineers' 802.3 standard specify implementations for Fast Ethernet.

.....

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

.J
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-J

Open System Interconnmion (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 fa~litate multivendot equipment interoperability.

(b){3)-P,L,

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DOfJID. 3253346'

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

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

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Teleconununieations Industry Association (TIA)~ Organization that develops


standards relating to telecommunications technologies. Together, the
Teleconununications Industry Association and the Electronic Industries Association have
fonnalized standards, such as Electronic Industries Association and Telecnmmunications
Industry Association -232, for the electrical characteristics ofdata transmission .
(b){3}-P.L. ~6-36

(U)

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A~pendixJ. ~esponse to

Management

Comments (U)

95

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f~}

TOf' SECR:E'F/J'CO:MDIT/Jl00911la \

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(b) (1)

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

.'fOP S:CRRTl/C8l'I&NT//lDl~ll2l \ ,'. .


-

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

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'f'6P S~CRJEI'fi!Q11B~h'l~9112~ \
.

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(U~h
. NSMA~sna gemeraenti~ Coanmdm!esntsp.ns~SAenrecostmmCoennded that the audit report \
emp ast 5

00. op

on

o tv e s o

gress.

\\\

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{U/ffleUO) Management Comments. NSA recommended that the audit report


emphasis that the THINTHREAD capability is valued by NSA.

99

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TOP SBCRETA'"~HNTI/29:Z9112J\ ,
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(b} (3)-P.L. 86-36


\ \ ...

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-(SNSQAudit Response. We acknowledge the fact that ihe current scope of the
. TRAILBLAZER is to provide the infonnation technology framework for the entire
104

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1'<W SEC:R:ET'h'CO!Hf'N"'fi'/29~1123

1
l

Team Members (U)

M
The Office of the Deputy Inspector General for Intelligence of the
Department of Defense, Intelligence.;.Audit prepared this report. Personnel of the
Office of the Inspector General of the DepartmentofDefense who contributed to
thee report are listed below.
{U)

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resp?3se~:~ coordinated wi~~d

development of this
the TRAILBLAZER Program Manage_m-ent Office.

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RECOMMENDATION:
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.
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1. (U/~ A forma).Risk Mitigation Plan is not recommended. The PEO is
committed to co]J.dtrcting the assessment. The team is currently being fot-ed. a
kick-offm~g..isplanned for March, and the team is.expected to report; to MrJ
I
jNLT May 31st. The cost and schedule impact of conducting the assessment
pose very low risk to the Transformational Programs. .

2. (U/~ Recommend the response, provided as an attachment, be forwarded to


the DoD OIG as part of the Agency's consolidated response to the Final Report.

DOCID. 32SfHfit'tfJENTIAL
SECUROY CI.ASSlFlCAllOH
'

NSA STAFF PRO ESSING FORM


KCC CONTROL NUMSER

DA4-04-05

ACllON

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~
SUBJECT
(~THINTHRE.AD fTRAILBLAZERIG

AUDIT REPORT
DISTR!S UTION

.APPROVAl. .

KCC SUSPENSE

{i] SIGNATURE

EXR!::G SUSI>ENSE

INFORMATION

SUMMAiW

PURPOSE:
(U/JliiSYO) To provide the recommended PEO input to the consolidated NSA response regardfug
actions requested by the "final" Department of Defense (DoD) Office ofinspecfur General (OIG)
report 05-INTEL-03, Requirements for TRAILBLAZER and THINTHREAD Systems of 15

December 2004.
,./(b) {3}-P,L, 86-36

.BACKGROUND I DISCUSSION:

.,c-.. . . . ____,__________

/_/...

---(U//FO'tiEij In. th~ir J ~e '04 Draft o9'Ie Audit Report, the DoD OIG made tru:ll>~wi:
'

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emonstra on . at or~:....../
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en a on, "De

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draft, in August, the Agency concurred "with comments.n.-....'Ule following


is an excerpt frori{those comments; "The Program Executive Office (PEO) is taking'th~? lead in
establishing.$ independent 'review team for nerforming this assessment, with the intention
that itsJ.e3ults will be completed in tim~

-@In response to this

!Milestone B documentation.~ ,
'
EerAt the time of this statement (Aug (04), the TRAILBLAZER Milestone B (MSB) was
'scheduled for December '04. When the final report was published, the PEO Assessment had not
yet begun. Concerned that the assessment could not be completed in time to support a
December milestone, the DoD OIG requested via the final report, that they be provided; ~SA
plans to eliminate the cost and schedule risks for completing
assessment."
'

f. .

the

...ferSince release of the final Audit Report, a DIRNSA-Chartered Transformational Advisory


Panel (TAP) reco:inmended TRAILBLAZER be rebaselined. The MSB is now planned for late
Fourth Quarter FY05.
COORDIHAliOWAPPI'IOVAl
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OFFICE

NAME AND OATE

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963-8675

DATE PREPARED

963~73(/8.

8 February 2005

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FORM A&;-96 REV NOV 9S
{Sups~ A8?S6 FE894
which i5 oosoterel
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3253346
.

CONFIDEN'fi:A:LIY.28291123NA TlONAI.. SECURITY


AGENCY
/
FORT GE:ORGE G. MEADF.., MARYLAND 20755-6000

11 February 2005
MEMORANDUM FOR DEPUTY ASSISTANT INSPECTOR GENERAL FOR
INTELLIGENCE AUDITS
.
.

SUBJECT: (U//FOUO)-DoD OIG Audit Report Requirements for the TRAILBLAZER


and THINTHREAD Systems; dated December 15, 2004 (Report 05-INTEL-

03, :Project No. D2003AL-0100)- INFORMATION MEMORANDUM


.

(U/~In

response to the DoD OIG request for additional information on the

TRAILBLAZER ~d THJNTHREAD report, NSAJCSS provides consolidated corporate


comments from our Signals Intelligence Directorate, Acquisition Organization, and
Information Technology Infrastructure Sel-vices Organization (now the Info1mation
.

Technology Directorate).

NSAICSS Response:

I
DoD OIG report, the. TRAILBLAZER Milestone has been
f
scheduled for late in the fourth quarter of FY05 from the previously
scheduled
.earlier
,
.
I
MS B. Accordingly, this now allows sufficient time for the f70nduct of the assessmef!.t
recommended by the DoD OIG.

'

~Subsequent to the

~~~~~--------------------------~

by May 2005.

assessment w.
-,e'-......,
.
.

'

'....:.....
I
If yon haye an~ anestiou,o~ need additional information, pi~~~-:.~~~:{.~

./

,./

{b) (J.}

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

/;'b) (3)-P.L.

MARIAN. O'CONNOR
Chief of Staff
86-36
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SECURITY CLASSIFICATION

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TO

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-=~==--------~~----------------------------~[]APPROVAL
SUBJECT
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(TOP ~KCRE'F/}GOMHff) Office of the IG of the Department of


Defense Report on TRAILBLAZER and THINTHREAD Systexps

~~~==~--------KCC SUSPENSE

!%) SIGNATURE

EXREQ SUSPENSE

ELEMENT SUSPENSE

iNFORMATION

DISTRIBUTION

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. SUMMARY

PtlRPOSE: (GO'NFIDEN'f'fALI/20291123) Attached for your review and signature is the NSA
consolidatedrespo~se to the report from the DoD OIG on requirements for TRAILBLAZER and
TIDNTHREAD systems.

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11 February 2005

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(0) Auclt oi!M Reqllfremfsltl tor tbe TRAILBLAZER &lid 'l'HlN'IBlUU.D
Sptems
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~No.InOOJAL.OliO

.(e1Thl5 paper tonWna ~IWII to rom!'Jlelld1ioD& mada by~ DoD oro Alldt or
!he ~ for t1le 'l'RAILBLAZElt and 'I'HINIHRRAO S)1tems (Project No.
D2003AL-0100). It abo b:ltide.& di&i;u.WJa or key co~ from 100 ma report tlla1
NSA ~!Jobllplcd to~

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Service Comments (U)

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' NATIONAL SECURITY AGENCY


C!HTRAt. SE.CURITV S!RVtCI!:

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August 200t

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SUBJECI': (U)J.uditofthe ~for lhs'l'R!UI..BLA2ER w nmmrRBAD

S,YitemS. d&b!d Iuoe 18, 2004 (Projecl No. D200Mf...0100)

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Appendix K.

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(U)'

Office of the Secretary of Defense

TJ
1]
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(U)

Under Secretary of Defense for Acquisitio14Technology, ancl Logistics


Under Secretary of Defense (Comptroller)
.
.

Under Secretary of Defense for Intelligence


.
..
Assistant Secretary ofDefense for Networks and Infonnation Integration
i

. Oth,er Defense Organization


Director, National SecUrity Agency
Inspector General, National Security Agency
Inspector General, Defense Intelligence Agency
Inspector General, National Goospatial-Intelligence Agency
-Inspector General, National Reconnaissance Office

Congressional Committees and Subcommittees, Chairman and


Ranking 1\fiiiority Membe~
.

;
Senate Subcommittee on'Defense, Committee on 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 IntelHgence

(U}

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113

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#Audit Response. Our wording reflects information received from our so~ces. We
reviewed all of the comments below and checked our sources and made adjusti;nents as
required.

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(B) Audit Response. We have documented infonnation to support this statement;

however, because of fear of reprisal, we agreed to keep the sources anonymous.

111

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. - o:(.the'NTA Study's re

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(U/~anagement Comments. NSA/management comments stated th~t the

TRAILBLAZER has long-established plans fo:r external assessment of the Teclu,.o1ogy .


Demonstration Platform for prepar.ation for ~lestone B. The Independent VerlncAtion
and Validation (IV&V) of29 Evaluation Cr}teria is being conducted by NSNs \ . \
independent Office of CoipOrate Asse5sments' Test and Technical Evaluation elerm\nt .
(TIE}. ;The Early Operational Assessment/and Operational Assessment will be \ \
perfonried by JITC, which had established/a presence in TRAILBLAZER spaces by \
November 2003. Results of both activitie$ will be provided to the Milestone DeciS.ioq
Authority before Milestone B.

\ \

(Ut~Audit Response. TRAILBLAZER posqroned Milestone B schedul~ 'for

December 2004 because of technical issues with the Technology Demonstration


Platform. February 2005 is the earU,~st date that TRAILBLAZER will be ready tor
MILESTONE
B. . . .
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(MSJ} Management Comments. NSA management comments


that the ExecutjJ.e
Summary's statement that TRAILBLAZER development "wasted_ . : _.
'

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-(S//SI}..Managem.entthCommentsd.' NSA management comments stated that the Executive


Summary's assertion at N8A" tsree:arded solutions to ll{g_ent national securiJ:Y needs"
is not accurate.\

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(&/lSftAudit Response. NSA comments are inaccurate. Major issues raised in the
mana!l:ement comments are addressed in the reoort. soecificall'Lthe issue of

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