Legislative Branch Computer System Plan

A Report to the
55th Legislature
From the
Legislative Branch
Computer System Planning Council

October 1996

Published by
Montana Legislative Services Division
Room 138, State Capitol
Helena, MT 59620-1706
(406)444-3064

TABLE OF CONTENTS

 INTRODUCTION

APPENDICES

APPENDIX A
Montana Code Annotated 1995 - Title 5, Chapter 11, Part 4
Computer System Planning

APPENDIX B
1996-97 Biennium Legislative Branch IT Accomplishments

APPENDIX C
Legislative Branch Standards

APPENDIX D
Legislative Branch Central Computer Proposed Budget For FY 1998-99

APPENDIX E
IT Impact on FTE

INTRODUCTION

A Legislative Branch Computer System Plan is required by Title 5, chapter 11,part 4, Montana Code Annotated (MCA). The Legislative Branch ComputerSystem Planning Council (Planning Council) has developed a plan in accordancewith the requirements of that part. In addition, the Planning Council recognizesthat a plan is necessary to direct the substantial investment in technologytoward providing the maximum return and to best address the informationneeds of the Branch.

In developing the plan, the Planning Council recognized that planning is anactive process. Publius Syrus said, "It is a bad plan that admits of nomodification." (Bartlett's Familiar Quotations, 1980.) The Planning Councilrecognizes the plan as more a process than a product. As such, the plan alsoprovides a process for continual evaluation, communication, and review, ratherthan a blueprint for a specific configuration of hardware and software.

Evaluation of existing and potential applications is both technical and managerialin nature. Recognizing this, the Planning Council relied, to a great extent, on thetechnical staff of the Legislative Branch to review existing systems and torecommend technological directions and solutions to identified problems. ThePlanning Council reviews and approves the recommendations of the TechnicalPlanning Group (TPG) before Information Technology (IT) resources areexpended.

This plan represents the collective vision, planning, actions, and achievementsof both groups as well as each division in the Branch.

It should be noted that because of the Consumer Counsel's remoteness andseparate and distinct mission, it has not been incorporated into this plan.

EXECUTIVE SUMMARY

The mission of the Legislative Branch is to provide a consolidated administrativestructure to support the mission of the Legislature. The Legislature's missionis to exercise the legislative power of state government vested in the Legislatureby The Constitution of the State of Montana. In order to carry out this mission,the Legislature depends on the collection, processing, and distribution ofinformation to and from individual citizens, businesses, and organizations withinthe state. The tools of IT expedite and add both quantity and quality to theinformation collected by the Branch, as well as facilitating the analysis of thatinformation and the subsequent distribution of the laws, policies, andconclusions of the legislative process.

In the past, IT has been successfully used by the Legislative Branch primarilyto allow staff to respond more quickly to requests for information, to producemore complete fiscal and operational analyses, and to expedite and reduce thecost of information processing. Examples of these types of activities includethe Bills Processing System, which allows quicker and more accurate processingof new and changed bill text, and the Montana Integrated Budget System(MIBS), which allows dramatically more fiscal review and analysis in muchshorter time periods than was previously possible. (See Appendix E for moredetail on the IT impact on staffing levels.)

More recently, IT has begun to be used effectively to improve both thecollection of information from other government agencies and the disseminationof information to the public. For example, direct access to agency systems bythe Legislative Audit Division staff has improved audit efficiency; access to awide variety of information on the Internet has improved the research process;e-mail response by agencies to fiscal notes has speeded fiscal note processing;and direct access by the public to the Bill Status System, the MCA on CD-ROM/Internet, and bill text on the State Bulletin Board System (BBS) hasallowed, quick and direct access by interested citizens.

The Planning Council anticipates that in the future, substantial time, effort, andmoney will continue to be focused on the speed, quality, and reliability of theinternal information processing systems that the Legislature relies on to conductits business. As both technology and the processes of the Legislature change,these systems must be kept up-to-date to ensure their reliability and that theywill continue to meet the ever-changing and ever-growing needs for timely andaccurate information analysis in the Branch. It is also expected that the levelof public demand for immediate and direct access to government informationwill continue to grow and that this demand will consume a greater percentageof information resources than it has in the past. Finally, it is expected that thepublic will also request more direct input into the government process throughtechnologies such as e-mail and interactive video conferences. Theseopportunities will need to be evaluated in the future based on their value andcost- effectiveness.

The Planning Council believes that the Branch is prepared to tackle thesechallenges in IT. An active Planning Council, supported by a well-qualified andprofessional technical staff, will ensure that both the processes in place and thesystems that support them are reviewed and updated and that opportunities toimprove public access to government are evaluated, cost-justified, andimplemented when feasible. The Branch is not only communicating andworking together internally, but also externally with the Executive Branch andother local, state, and national government agencies to ensure coordination. The Branch plan for automation includes guidelines and established standardsthat have been designed to support a smooth transition to the future astechnology advances.

Technologically, the Branch is supported by a large base of valuablemicrocomputer technology and a replacement plan that ensures adequate andup-to-date computer hardware in the future. Software is largely standardizedand current, as well. This allows the Branch to focus on consolidation of data,software development, and information processes. The centralization of thecomputer network support and systems development staff, servers, budget, andother resources provides a high degree of efficiency in delivery of IT services. In addition, a major challenge to the Branch and the Department ofAdministration (DOA) is to upgrade the cable in the Capitol to support thecurrent and future information communication needs. This project is scheduledto begin in the summer of 1997 and will be done in conjunction with the Capitolrenovation project.

In order to support this information infrastructure, the Planning Council hasrequested one central IT biennial budget of $1,939,182 for the Branch forcomputer and network needs. Based on the approval of the central budgetconcept by the Legislature in 1991, the Legislative Services Division has againincluded the central computer budget proposal as part of its budget. This proposal maintains expenditures at the same level as for the FY 1996-97biennium, with the exception that network connect fees have gone up.

Major projects/goals include maintaining the operational status of the currentnetwork and application systems, conversion from Windows 3.1 to Windows95/Windows NT (or the state standard 32 bit desktop OS), conversion to thenew state e-mail system, implementation of the Legislative AutomatedWorkflow System (LAWS), conversion and consolidation of severaladministrative systems to an Oracle client/server-based system, and someenhancements to existing Oracle systems.

Support for legislator-owned computers has been one of the more difficultissues to address over the past several years. The Planning Council anticipatesgrowing difficulties and opportunities in this area. Successful networkadministration (serving the Branch) is heavily dependent upon predictablebehavior of attached components. Adding legislator equipment of differingbrands with a variety of software having varying release levels vastlycomplicates the network support arena and ultimately risks the integrity of theentire Branch network. Each component of incompatibility creates the need fornew layers of support, cuts productivity, raises training costs, and makes itharder to "re-engineer" workflows to get information to more people. For thesereasons, the Planning Council recommends against support of privately ownedmachines on the network. The Planning Council recognizes, however, thatintegrating legislator use of computers into the system will be a priority in thenear future. A considerable planning effort will be required to define theappropriate hardware and software packages needed to provide a useful set oftools for legislators. Recognizing this fact, the Legislature adopted House JointResolution No. 23 in 1991, directing a specific study of the question oflegislator use of computers. The study document, "Study on Use of Computersby Legislators", can be obtained from the Legislative Services Division. Thestudy concluded that although cost factors may preclude a recommendation forpurchase of computers for all members' use in the near term, there is a greatneed to work toward making data services more readily available to members.

In summary, the Planning Council believes that the Montana Legislature hastaken a conservative and prudent, but effective, approach to IT use in the past. Cooperation and coordination both within the Branch and with other agenciesand organizations have ensured both effective and cost-effective decisions. Theplans, processes, and visions of the Planning Council, as detailed in this report,should ensure that the current investments and opportunities are successfullyused and form the basis for more efficient and effective legislative processes. ACKNOWLEDGMENTS

Legislative Branch Computer System Planning Council
Robert Person, Executive Director, Legislative Services Division,
 Chairman (ex officio)
Rep. Harriet Hayne
Marilyn Miller, Chief Clerk, House of Representatives
Senator Bob Pipinich
Rosana Skelton, Secretary of the Senate
Scott Seacat, Legislative Auditor
Clayton Schenck, Legislative Fiscal Analyst
Robert Nelson, Consumer Counsel
Brett Boutin, Department of Administration, Information Services Division

Technical Planning Group (TPG)
Mary Bryson, Legislative Audit Division
Terry Johnson, Legislative Fiscal Division
Henry Trenk, Legislative Services Division

Technical Implementation Planning Group (TIPG)
Karen Berger, Legislative Services Division
Jerry Churchill, Legislative Services Division
Brian Dostal, Legislative Services Division
Beth Furbush, Legislative Services Division
Jim Gordon, Legislative Services Division
Mary Longmaid, Legislative Fiscal Division
Rich McRae, Legislative Audit Division
Tom Mulvaney, Legislative Services Division
Jeanette Nordahl, Legislative Services Division
Rick Peaslee, Legislative Services Division
Tim Peterson, Legislative Services Division
Karen Schreder, Legislative Audit Division
LEGISLATIVE BUSINESS FUNCTIONS

The Montana Legislature is one of three branches of state government createdby the Montana Constitution. The people of Montana express their will directlythrough the Legislative Branch, which enacts laws, levies taxes, andappropriates revenue received from those taxes to various agencies ofgovernment for public purposes.

The structure and function of the Montana Legislature are prescribed byconstitutional law, statutes, and legislative rules. The Legislative Branchdivisions established to support the Montana Legislature and its committees arethe Legislative Services Division (LSD), the Legislative Audit Division (LAD), andthe Legislative Fiscal Division (LFD). The legislative responsibilities includeareas such as lawmaking, appropriation, taxation, oversight of the ExecutiveBranch, and representation of local interests. The primary function of theLegislature, however, is lawmaking, which consists of the consideration of bills. Other responsibilities of the Legislature that support its primary function includeresearch, fiscal analysis, legislation and policy development, informationdistribution, oversight, and administration. These are described briefly below.

A. RESEARCH

The LSD, LAD, and the LFD all provide nonpartisan research services to theLegislature. The LSD staff provides reports and prepares bills for the legislatorsand committees. They also provide legal research and a reference library for theBranch. The Legislative Environmental Policy Office, within the LSD, providesresearch and analysis of environmental issues. The LFD provides researchsupport in matters related to budgeting. The LAD is called upon to research,analyze, and report on audit issues.

B. FISCAL ANALYSIS

The LFD provides an independent review of the Governor's budget. It alsoconducts research and analysis of revenue and expenditure trends and providesreports on the impact of economic changes on both enacted and proposedlegislation. By performing fiscal analysis and by assisting legislators inunderstanding agency budgets, the LFD helps the Legislature make responsibledecisions about the collection of state revenue and the subsequent investmentof, and allocation to, state government programs.

C. LEGISLATION AND POLICY

The LSD, House and Senate staff, and the LFD provide staff support to theLegislature as it proposes, debates, and makes decisions on legislation. TheCentral Services Office of the LSD provides clerical support for the bill drafting,introduction, engrossing, enrolling, and codifying of bills. House and Senatestaff provide clerical support to committees, support the flow of bills throughthe House and Senate, and generally support the operation of the House andSenate.

D. INFORMATION DISTRIBUTION

All legislative divisions participate in the distribution of information to theLegislature and the public. For example, legislative audit reports are availableto the public, as are budget analysis, legislative fiscal, and interim reports. TheData Distribution Center in the LSD distributes all legislative proceedings in bothprinted and electronic formats to the Legislature and the public during thesession. These include bills, amendments, resolutions, status reports, andjournals. The Legislative Information Office provides to the public direct in-person and telephone access on the status of legislative proceedings and thedaily calendar of events. The Office of Legislative Information Technologysupports the systems that allow the creation and maintenance of electronicinformation and that make electronic access to bill status and text possible. The Legal Services Office, the Central Services Office, and the Office ofLegislative Information Technology are responsible for preparing and distributingthe MCA, related rules, journals, annotations, and other documents related tothe proceedings of the Legislature.

E. OVERSIGHT

The LAD provides oversight by regularly auditing the functions of stategovernment and gives the Legislature and the public an independent analysis ofthe effect of laws and rules. These reviews allow the Legislature to analyzewhether the Executive or other elected officials comply effectively andefficiently with the laws and policies of the Legislature. The LAD alsoinvestigates reports and allegations of fraud in state government. TheLegislative Environmental Policy Office serves in an oversight capacity for stategovernment on environmental issues. The LFD is statutorily charged withoversight responsibility for the appropriations process, revenue, and other fiscalpolicy issues. The LSD has oversight responsibilities incorporated in support ofthe Revenue Oversight Committee and the Administrative Code Committee andfor other like assignments.

F. ADMINISTRATION

The Central Services Office of the LSD provides purchasing, personnel, andaccounting services for the entire Legislative Branch. These services help toefficiently expedite daily business issues and needs of the Branch.

Additional information on the legislative process can be found in A Legislator'sHandbook, 1997, by the Montana Legislative Services Division. In addition, thepublication provides background on the relationship of the process toconstituents, the media, other government agencies, and lobbyists.

The mission, goals, and objective documents submitted as part of the biennialbudget process are another valuable source of information about the LegislativeBranch. IT CONTRIBUTION TO THE
LEGISLATURE'S BUSINESS

The Legislature is information. All that it works with and all that it produces are information. In this information age, enhancing the ability to gather, process,and distribute legislative information more quickly and more accurately is anecessity.

The State of Montana, through its Information Technology Advisory Council(ITAC), has adopted the view that information is critical to the functioning ofgovernment. Its view is expressed in the following observation from theInformation Technology Strategic Plan, July 1994:

 The people of the state can benefit from information madeavailable both by state agencies and by others, including localgovernment agencies, education, libraries, and other not-for-profitinstitutions, and for-profit organizations. The free flow ofinformation between the government and the public is essentialto a democratic society. Correspondingly laws reflect increasingdemands that state government be responsible for providing thepublic and other governmental entities with access to informationan agency may possess that illuminates the operation ofgovernment itself, society, and the economy--past, present, andfuture. Open access to information is a means to ensure theaccountability of government . . . .

Technology is the primary tool used by the Branch to collect, analyze, anddisseminate information. Therefore, the Legislature is dependent on itstechnology. When deciding how and for what purposes to use technology, itis critical to understand how it is incorporated into the legislative process. Thetechnology planning process, established by Title 5, chapter 11, part 4, MCA,helps ensure that the Legislature is making effective decisions aboutincorporating technology into the legislative process.
CURRENT IT ENVIRONMENT

The next four sections summarize the history of IT development in the Branch,the current organizational and technical environment that supports IT processesand initiatives in the Branch, and the accomplishments that have been made toimprove legislative processes.

A. REVIEW OF LEGISLATIVE BRANCH AUTOMATION PROCESS

Over the past two decades, the Legislative Branch has become nearlycompletely reliant on computer technology to administer the business processesof the Branch. From 1970 to 1985, most applications were on the statemainframe computer. The LSD, for example, used a proprietary program calledAutomated Legal Text Entry and Revision (ALTER) to manage code and bill textdata. The advent of the personal computer rapidly transformed thisenvironment. Stand-alone dedicated word processors were barely introducedwhen they were replaced by personal computers with multiple capabilities. Soon, those personal computers were linked to one another in networks, andthe potential for improvement exceeded the ability of the Branch to keep up.

Recognizing the need for planning, the Senate contracted with a privateconsultant during the 1987-89 interim to review the situation and recommendapplications. Senate planning led to implementation of a network in the Senatefor the 1989 Session. The process was mirrored by the House, whichimplemented a limited system tied closely to the LSD system. The growth ofapplications in the House and Senate led to recognition by legislators and staffthat integration of the systems was important to the future operation of theLegislature. Central planning for the Branch was essential in order to achieveappropriate integration.

Since recognition of the need for planning grew from the increased use ofinformation systems throughout the Legislative Branch, some evaluation of allinformation systems was required. An informal review of existing systems wasconducted by the technical staff. This work clearly identified a predominantneed to improve and further integrate office automation and informationprocessing functions throughout the Branch.

The primary focus on the application of technology has been on theimprovement of legislative staff productivity. Use of IT has been effective, andspecific cases are noted in the IT accomplishments section.

In recent years, other agencies and lobbyists have, on a small scale, beenincluded in direct technological access to the legislative staff and process. Forexample, distribution of the MCA on CD-ROM, direct TV and radio media accessto some of the proceedings in the chambers, dial-in public access to bill status,use of the state electronic BBS for information distribution, use of the Internetfor public access to MCA text and session proceedings, and use of the statemainframe and data network to communicate directly with agencieselectronically for audits and financial analysis have all expedited the flow ofinformation to and from the Branch.

A thorough review of processes in the Legislative Branch was conducted duringthe FY 1996-97 biennium. This review was conducted as the first phase ofconsolidating the systems development function in the Branch. Other goals ofthis project were to determine where overlap existed in Branch processes andto determine where current technology could be applied to gain efficiency. Thisproject took about 9 months and was completed in February of 1996. A localcontractor was hired to conduct the analysis. The results of the analysis wereused to develop the project list and budget for the FY 1998-99 LegislativeBranch Computer System Plan. For more information on the project see "Stateof Montana, Legislative Branch, Automation Analysis Final Report".

B. ORGANIZATION

In addition to a computer system plan, an appropriate IT organizational structureis necessary to effectively implement the goals of a plan. The following ITorganizational structure has been established:

Legislative Branch Computer System Planning Council

Mission: to develop and maintain a Legislative Branch Computer SystemPlan in accordance with 5-11-403, MCA

Legislative Council

Mission (as it relates to IT):
  to serve as the Legislature's approving authority for theLegislative Branch Computer System Plan in accordance with 5-11-405, MCA

Executive Director, Legislative Services Division

Mission: to provide leadership to the Legislative Branch Computer SystemPlanning Council and provide technical staff support to thePlanning Council

Technical Planning Group

Mission: to assist the Executive Director of the Legislative ServicesDivision and the Office of Legislative Information Technologystaff in providing technical planning support to the LegislativeBranch Computer System Planning Council

  Its input ensures the Planning Council that goals are achievable,that everyday needs are met, and that significantly major issuesare addressed. This group includes staff from each legislativedivision responsible for IT services within their own divisions Technical Implementation Planning Group

Mission: to assist the Technical Planning Group and the Office ofLegislative Information Technology in providing technical supportto the Branch

  Once specific IT goals and objectives have been established, thisgroup works out the details of implementing the technology sothat it meets the needs of the Branch. For instance, when theBranch decided to consolidate on one network, this groupdetermined the drive assignments and directory structure for thatnetwork. This group includes IT staff and technicalrepresentatives from each legislative division.

Office of Legislative Information Technology

Mission: to play the lead role in implementing the computer system planestablished by the Planning Council and adopted by theLegislature

  To accomplish this objective, this office houses the NetworkServices and System Development IT staff. The Office ofLegislative Information Technology works in cooperation withTPG, TIPG, and Division leadership to implement technology forthe Branch. Also, through this staff, coordination is provided forinformation services and relationships with outside organizations,such as the general public, lobbyists, and other agencies.

The Planning Council has also developed reliable ways of coordinating withother agencies and organizations. For example, participation by the ExecutiveBranch (Department of Administration) in the Planning Council and the TPGactivities ensures constant communication on state system compatibility. ThePlanning Council recognizes the need to ensure compatibility as a legalrequirement, to minimize purchase and support costs, and to facilitateinformation access. Participation by the Branch in the Information TechnologyAdvisory Council (ITAC) and the Information Technology Managers Group(ITMG) organizations keeps the Planning Council in touch with the directions ofnot only Executive agencies, but also the Judiciary, other elected officials, and,most recently, the University System and the cities and counties.

The Branch relies on the Department of Administration to provide and operatethe data and telecommunication networks within the Branch as well asconnecting it to the "outside world". The relationship allows the Branch tofocus its limited staff resources on collecting, analyzing, and communicatinginformation rather than on maintaining and operating the networkinfrastructure.

C. IT EQUIPMENT

The technological equipment implemented in the Branch puts the Branch in agood position to tackle the last half of the decade. The paragraphs that followbriefly describe the technology used in the Branch.

1. Computer Hardware

The Branch has determined that most of its internal computing needs can bemet cost-effectively using microcomputer hardware. Currently, there areapproximately 200 IBM Compatible PCs in the Branch network. The Branchalso operates a pool of approximately 10 portable computers.

The Branch will continue to rely on the state mainframe (operated by theDepartment of Administration) for large statewide systems, such as theStatewide Budgeting and Accounting System (SBAS) and the Payroll, Personnel,and Position Control System (PPP), as well as for access to large agencysystems.

The mainframe is also being used for a few Branch systems, such as the BillStatus System and the MCA codification process. However, current plans areto replace the Bill Status System with a client/server-based system in the FY1998-99 biennium.

The Branch also leases Oracle server services from the Department ofAdministration for the Montana Integrated Budget System, SBAS Access andReporting Tool, Information Request System, and several internal administrativesystems.

2. Computer Software

The Branch has standardized its microcomputer software. These standards arethe same as those used by the Executive Branch on major projects. AppendixC contains the Branch software standards.

3. Telecommunications

The token-ring Local Area Network (LAN) and the SummitNet Wide AreaNetwork (WAN) provided by the DOA provide a fast, efficient pathway for datanetwork traffic within the Branch and to the "outside world". The Branchexpects to make significant use of the Internet and significant, but decreasing,use of the BBS for contact with the public through this network, as well as thestate's mainframe computer. The cable used in the Capitol, however, issubstandard. This inhibits the expansion of the network to new uses and offersa significant risk to the continued reliable operation of nearly all the Branch's ITactivities. Current plans are to upgrade the data and communication wiringinfrastructure in the Capitol in the summer of 1997. The wiring upgrade is partof the Capitol renovation project approved by the 1995 Legislature.

D. IT ACCOMPLISHMENTS

The Legislative Branch has made numerous technological achievements. Descriptions of several of the major achievements are delineated in the pagesthat follow. The descriptions also illustrate Branch reliance on IT resources.

1. Information Collection

* The Legislative Branch has installed LANs, using state and LegislativeBranch standards. These networks have been attached to the state datanetwork and can communicate with each other and with the statemainframe. Branch staff, working at various state agency sites, canattach to the Branch LANs via the state data network. This improvesproductivity by allowing the transfer of information easily without traveltime to and from the office. A number of the achievements listed belowcould not have been accomplished without these networks.

* Several mainframe and Oracle client/server programs have beendeveloped and enhanced to help evaluate the state agency financialinformation maintained on SBAS and PPP.

* The Branch has issued seven EDP audit reports on state agency controlsof information resources and agency use of information resources.

* The cataloging system for the LSD Library has been automated, whichhas improved access to data.

2. Information Analysis

* The Branch has standardized on IBM compatible PCs for informationanalysis. This microcomputer standard (for the client processor)provides the most computer power for the lowest price. The Branch isalso beginning to implement client/server technology for many of theBranch core systems.

* Use of the analysis tools provided on the PC has resulted in increasedproductivity and quality of the audits completed by the LAD. Forexample, downloading state agency SBAS information into a Lotusspreadsheet provides the audit staff with the ability to more quickly andeasily conduct analysis and complete audit testing.

* Several improvements have been made to the bill drafting process byapplying automation. The bill drafters now use PCs to draft bills insteadof manual methods. This has resulted in increased staff productivity andhas allowed data entry staff to work on other projects. A bill conflictcheck has also been implemented, which indicates when multiple billsare amending the same section of code. A bill drafter can then check toensure that the amendments do not conflict.

* The Bills Process, a mainframe operation from 1973 to 1993, has beenconverted to run on the PC network using WordPerfect. The printformatting capabilities of WordPerfect have produced a more readableand more flexible bill format than was possible before. Also, it will beeasier to hire and train qualified Bill Processing session staff becauseWordPerfect is so widely used for word processing. A third benefit isthat public access to the text of bills may be more easily supported (i.e.,by placing the text, with only minor conversion, on the BBS).

* Several improvements have been made to the legislative budget analysisand tracking process. Better analysis is being provided through use ofthe personal computer and its analysis tools, such as Lotus 1-2-3, LotusApproach, and Oracle. Also, the time necessary to engross the generalappropriations bill has been reduced from 3 or 4 days to 1 or 2 days.

* The revenue estimating system continues to be refined. The impact ofa single factor changed by the Revenue Oversight Committee can bereflected throughout the revenue estimate with minimal analyst effort,allowing time for more focus on the analysis rather than on theprocedural aspect of revenue forecasting.

* Flowcharting software is used by audit staff to document state agencyprocesses. This helps audit staff more easily gain an understanding of the processes and allows for easy update or modification whenprocesses change.

3. Information Dissemination

* The House and Senate voting system software has been upgraded toallow it to be run on standard IBM compatible PCs. This has made iteasier for staff to support the system because they already have PCexpertise. Implementation of these systems has resulted in integrationof the vote and agenda functions, thus requiring only one operatorinstead of two, as needed before. Since both voting system PCs areattached to the Legislative Branch network, it is easy to transfer thevotes to the journal, which is also input on a PC on the network. Boththe House and Senate vote systems also use the network to print voteson the network printers in the House and Senate main offices.

* A bill status/bill tracking system has been implemented and is continuallybeing enhanced. This system helps the House/Senate leadership andstaff manage the flow of bills through the Legislature so that billprocessing deadlines can be met. It also provides the public with ameans of tracking the legislative process.

* The entire MCA camera-ready process is now done by legislative staffusing a PC-based system and laser printers. This has resulted insignificant cost savings and no additional FTEs. The full text of theMCA is stored on CD-ROM. This electronic storage version provides analternative to publishing the MCA in hardbound version. Purchasers ofthe MCA CD-ROM can use parts of the MCA in briefs, memos, reports,etc., without having to rekey the text. In addition, the MCA CD-ROMprovides a means of searching the MCA text for specific words orphrases.
* Preparation of the daily journal is now done on PCs at the rostrum. Theold method required the rostrum journal staff to prepare the journal inwritten form for input by data entry staff. The new method has resultedin more timely preparation of the journal and a reduction in staff timeneeded to produce the journal. The journal is disseminated primarily inelectronic form.

* Several improvements have been made to the amendments process. The amendments are now printed centrally in the amendmentcoordinators' offices. Special forms, and the printing costs associatedwith them, are no longer required. The general format of theamendment is maintained on the PC word processor. Amendments canbe prepared by a bill drafter, reviewed by an editor, and sent to theamendment coordinators through the existing computer network. Thishas resulted in amendments being more accurate and timely.

 All amendments must go through the amendment coordinators and arestored on the network. This stored copy of the amendment is used todisplay the text of amendments on the House and Senate display boardsduring second reading. The text of amendments is also used by theengrossing staff when engrossing bills. This prevents having to rekeylong amendments.

* An electronic version of all bill status reports (prior to the 1995 Session,these reports were printed for distribution to the general public) isavailable for electronic distribution on the BBS plus electronic distributionover the state e-mail system.

* The daily agenda of the House and Senate is on all the same electronicfacilities as status reports. Agendas are made available electronically atthe same time as they are sent to printing.

* Using state standard software has allowed the Branch to obtaininformation directly from state agencies on diskette without having torekey it, thus maintaining the integrity of the data. IT DIRECTION AND VISION

The Planning Council has a vision for the Legislature's use of IT, which consistsof two parts:

 1. To provide for the efficient, timely, and effective operation of thebusiness of the Legislative Branch in order to support its variousfunctions;

 2. To continually apply and improve IT to help minimizeimpediments to the collecting and disseminating public policyinformation to all interested parties.

The second part of this vision is consistent with the ITAC's vision for Montana,mentioned in the "Information Technology Strategic Plan, July 1994". A taskforce recommended in that report:

 . . . the state [of Montana] should adopt a vision . . . that wouldguide information technology planning and development to takeadvantage of current and future service delivery and/or accesstechnologies for citizens in their homes, businesses, schools,libraries, and organizations.
 
In continuing to expand and change the existing IT environment to meet bothof these goals, the Planning Council is seeking an integrated information systemthat supports the information needs of the Montana Legislature and the public.

As the system is developed, constant additions of reports and data maintainedfor download are foreseen. A migration toward a single graphic systeminterface that will present appropriate information and services to the differentuser groups is envisioned. The internal technical infrastructure of the Branchsystem will also be integrated to the extent that the greatest efficiency isachieved.

Ultimately, there will be one common system look and feel for all system usersfor text, video, graphics, etc. Users will be able to sign on to the system andwork their way through a series of choices or go directly to a predeterminedchoice quickly and easily.
IT ACTION PLAN FOR THE LEGISLATIVE BRANCH

There are several important tenets to any successful plan. First, it must seekto move toward a long-term vision. That IT vision for the Legislature has beenidentified above. Second, it must consist of relatively long-range goals ormilestones. Third, it must accomplish short-range tasks to move theorganization toward its long-range goals and, ultimately, its vision. Finally, theplan must provide a continual process of reviewing the findings of the short-term tasks in light of changes in the needs and opportunities of theorganization. This process is provided for by the charters of the PlanningCouncil, the TPG, the TIPG, and the Office of Legislative InformationTechnology, as well as the legislative review of this plan. The short-term tasksthat have been identified are listed below.

SHORT TERM (BIENNIAL PLAN)

The following is a brief description of the tasks identified for the FY 1998-99biennium and their benefits. Additional information can be obtained from theOffice of Legislative Information Technology staff.

A. MAINTAIN THE OPERATIONAL STATUS OF THE CURRENT NETWORKAND APPLICATION SYSTEMS -- $1,337,1821

* Continue to upgrade software packages (WordPerfect, Lotus, etc.) tokeep them on currently supported releases. Continue to fix and maintainPCs, servers, printers, etc. Continue to attach Branch PCs, Servers,Printers, etc, to the State Backbone Network.

* Continue to phase out old and technically obsolete hardware. TheBranch has established a 5-year life span for PCs. In the planning,purchasing, and budgeting process, the Branch will replace PCs and PCperipheral equipment after 5 years of use. With a 5-year life cycle, 20%of the PCs in the Legislative Branch must be replaced every year. TheBranch has also established a replacement cycle of 4 years for networkfile servers. Due to the increased usage and wear and tear on fileservers, they have a shorter life cycle than a PC used as a workstation. A replacement cycle of 4 years has also been established for printers. Printers are largely mechanical devices and as such are subject tobreakdown after long usage. They also become technically supersededby newer printers after about 4 years.

* Convert the Branch to Windows 95 and/or Windows NT. Montana stategovernment has adopted Windows 95/Windows NT as the replacementDesktop Operation System for Windows 3.1/DOS. In order to obtainadequate support from Information Services Division and PC softwarevendors, the Branch will need to convert to Windows 95/Windows NT. Converting the Branch during the FY 1998-99 biennium will beappropriate timing. Windows 95/Windows NT 4.0 will have beenreleased and on the market for about 1.5 years. Software bugsassociated with first releases should be fixed by then.

* Implement the new state government e-mail system. The currententerprise e-mail system is no longer supported by the vendor. A newreplacement e-mail system will be selected and implemented. Implementation is planned for the FY 1998-99 biennium. This item isbudgeted for by ISD. Branch network staff will work with ISD to installthe new e-mail system on the Branch network.

* Maintain current application systems. The Branch has used Oracle (andother software development tools) to develop several customizedsystems. Examples are the MIBS, Information Request System, andSBAS Access and Reporting Tool. Customized systems require periodicmaintenance, i.e., programmers must periodically adjust the programs tomake them run properly. Full-time staff or contracted services, or both, will be used to maintain the operational status of the Branch applicationsystems. Additionally, the Branch leases Oracle server services fromISD for several Branch Oracle systems. This lease is also necessary tomaintain operational status.

* Continue to support the centralization of IT staff and ensure thedevelopment of staff capabilities to effectively use the ever-changingtechnology and to understand and provide IT solutions to meet theneeds of the Branch.

* Prepare a disaster recovery plan for the Branch network and Branchapplication systems. A disaster recovery plan will assess the risk of aprolonged outage of computer services to the Branch and provide a planto minimize that risk in a cost-effective way.

* Perform an audit of IT Systems in the Branch to ensure that they arecomplying with proper IT development and operational standards.

* Work with and support the DOA in upgrading the Capitol wiring toensure the continued operation of the Branch network and to provide theincreased capacity that is needed to facilitate Branch use of newtechnology.

B. INTEGRATE AND STREAMLINE SEVERAL BRANCH LAW MAKINGPROCESSES -- $640,0001

* The Branch currently has several disparate computer systems supportingBranch processes before and during a legislative session. The currentcomputer systems supporting these processes are becoming obsoleteand prone to failure. A new system will allow the automation,integration and streamlining of processes associated with bill andamendment drafting, bill and amendment tracking and status, billintroduction, committee support, journals, agenda preparation, enrollingand engrossing, sections affected, and indexing. This system is calledthe Legislative Automated Workflow System and will be purchased froma vendor through a Request for Proposal (RFP) process.

C. CONVERT AND CONSOLIDATE BRANCH ADMINISTRATIVE SYSTEMS -- $105,0001

* With consolidation of the Branch organizational structure during the FY1996-97 biennium, a resulting consolidation of the Branch administrativefunctions (accounting, payroll, inventory, purchasing, billing, training,publication distribution, etc.) occurred. In the past, Branch divisionsindividually owned and operated their own computer systems toaccommodate these administrative functions. A rewrite of thesedisparate systems is necessary to consolidate them into one system andalso to bring them up to current state standards using Oracleclient/server technology. Some of this work was done during the FY1996-97 biennium. The plan is to finish this work during the FY 1998-99 biennium.

D. MINOR ENHANCEMENTS TO EXISTING ORACLE SYSTEMS -- $67,0001

* The MIBS and the SBAS Access and Reporting Tool are systems thatwere developed during the FY 1996-97 biennium using Oracledevelopment tools. Usually after a major rewrite of a system, minorenhancements to the system are identified. The plan is to allow forminor enhancements to these systems.

E. EXPAND ACCESS TO LEGISLATIVE DATA FOR LEGISLATORS AND THEPUBLIC -- $10,0001

* The Branch currently offers access to legislative data (bill text, billstatus, journal, etc.) through the BBS, through the mainframe, andthrough printed materials. The wave of the future for providing data tothe public is through the Internet. The plan is to provide legislative datathrough the Internet. Legislators could also access this data with theirown laptops.

By accomplishing these tasks, the Branch will make major headway in makingIT processes more dependable and efficient. The Branch will also makeimportant contributions to the legislative process by increasing public access to,and participation in, government.

1The total estimated cost for tasks A through E is $2,159,182. The total budget available is$1,939,182. Savings in management efficiencies or reduced system requirements of $220,000will be needed to bring the cost to within the budget amount.

FY 1998-99 CENTRAL COMPUTER
BUDGET PROPOSAL

In order to implement any action plan, the necessary IT resources must beclearly identified. This budget proposal identifies the hardware, software,supplies, and contracted services necessary to achieve the Branch goalsoutlined in the plan. Appendix D contains the details of the budget. The totalCentral Computer amount budgeted for the biennium is $1,939,182. This is thesame amount that was budgeted for the FY 1996-97 biennium, with theexception that network connection fees have increased.

It should be noted that individual legislative division budgets include existing ITcosts for items such as mainframe and telephone. The Consumer Counsel isnot included in this Central Computer Budget Proposal. APPENDIX A Montana Code Annotated 1995
Title 5, chapter 11, part 4
Computer System Planning

5-11-401.  Purpose. It is the purpose of this part to establish a mechanismfor computer system planning encompassing broad policy needs, long-termdirection for computer use, and the effective implementation of a detailedplan for the legislative branch. It is the purpose of the plan to assurecoordination of information system decisions so that the overall effectivenessof the senate, the house of representatives, and legislative agencies may beimproved. It is the further purpose of the plan to enhance the coordination oflegislative branch systems with executive branch systems wherever possible.

5-11-402.  Legislative branch computer system planning council. There is alegislative branch computer system planning council composed of:
 (1) the secretary of the senate or another representative of thesenate designated by the president;
 (2) the chief clerk of the house of representatives or anotherrepresentative of the house designated by the speaker;
 (3) the sergeants-at-arms in the two houses or another representativeof each house designated by the presiding officer of the legislativeadministration committee of that house;
 (4) the executive director of the legislative services division, whoshall chair the planning council;
 (5) the legislative auditor;
 (6) the legislative fiscal analyst;
 (7) the consumer counsel; and
 (8) a person designated by the director of the department ofadministration to represent the data processing policy and planning functionsof the department, who shall serve as a nonvoting member of the planningcouncil.
5-11-403.  Duties of legislative branch computer system planning council.(1) The legislative branch computer system planning council shall developand maintain a legislative branch computer system plan. In developing andmaintaining this plan, the planning council shall:
 (a) continuously review or have reviewed existing informationsystems that are candidates for automation or enhancement, as well asreview existing automated systems that may be improved or integrated withnew applications;
 (b) develop and maintain a description of functions or services in thelegislative branch and its agencies that would, through application orimprovement of computer technology, provide better service to members ofthe legislature, legislative agencies, and the public;
 (c) develop and maintain a ranking of needs, taking into considerationthe relative effectiveness and probable cost of alternative systems; and
 (d) develop and maintain recommended system standards for thelegislative branch and standard or custom software and hardware solutionsappropriate to the needs and environment of the legislative branch and itsagencies.
 (2) To the extent possible:
 (a) future applications should be explicitly identified in the plan;
 (b) current applications should allow a high degree of flexibility sothat future applications are not limited; and
 (c) both current and future applications should be coordinated andcompatible with the standards and goals of the executive branch establishedunder 2-17-501 through 2-17-503, as well as the legislative branchstandards developed in accordance with the requirement in subsection (1)(d).

5-11-404.  Technical support. (1) The executive director of the legislativeservices division shall provide technical staff support to the legislative branchcomputer system planning council. In performing this duty, the legislativeservices division shall assist the planning council by:
 (a) developing or having developed analyses of existing and alternatesystems;
 (b) providing technical solutions and advice related to the standardsset by the planning council;
 (c) assisting in assessing benefits and costs of optional solutions;
 (d) apprising the planning council of developments and directions inthe industry;
 (e) maintaining a liaison with and informing the planning council ofplans and directions within the executive branch; assisting in the selectionand purchasing of supplies and equipment; and
 (f) providing other assistance as may be requested.
 (2) The executive director shall encourage participation of appropriatepersonnel of the senate, the house of representatives, and other legislativeentities in the provision of technical support.

5-11-405.  Legislative branch computer system plan -- adoption. Thelegislative branch computer system plan must be approved and adopted bythe legislative council.

5-11-406.  Legislative branch systems -- conformity to standards. Computerhardware and software systems installed by the senate, the house ofrepresentatives, and legislative branch agencies must conform to standardsestablished in the legislative branch computer system plan in effect at thetime the purchasing decision is made.
APPENDIX B 1996-97 Biennium Legislative Branch
IT Accomplishments

The projects and tasks described below have been accomplished during the1996-97 biennium. Some of these tasks are the result of initiatives taken 4to 5 years ago. Other tasks were started more recently, but all have takensignificant effort and resulted in significant achievement in the 1996-97biennium.

1996-97 IT Achievements

* An extensive analysis of all business processes, and informationsystems in the Branch was conducted. This analysis provided theBranch with the following:
 . documentation of the processes and systems in the Branch
 . identification of overlap in processes
 . identification of potential uses of new technology(client/server, document management, workflow, etc.)
 . cost of applying new technology to the processes
 . a basis for setting priorities and justifying the application ofthis new technology
 This analysis was used by the Branch to determine developmentproject priorities for the FY 1996-97 biennium and to develop acomputer system plan for the FY 1998-99 biennium. This project isalso helping to ensure that all future development by the Branch isintegrated and that overlap in processes is eliminated.

* The Branch, in conjunction with the Office of Budget and ProgramPlanning, has developed a joint budgeting system using Oracleclient/server technology. The system is called the Montana IntegratedBudget System (MIBS). The MIBS replaces several legacy systems:the Executive Budget System (EBS), the Legislative Budget System(LBS), the Legislative Appropriation Reporting System (LAS), and theRevenue Estimate Reporting System (RES). These antiquated legacysystems were used by all branches of government, including theLegislature. These systems were not integrated and were limited intheir capacity for accessing and manipulating data. The MIBS systemhas been defined functionally as having several distinct components,namely the budget development component, the legislative processcomponent, and the Executive turnaround/comptroller component. Itwill be used extensively during the entire biennial budget cycle.
 
* The Branch has completed the conversion to one centrally managedNovell Network. This has reduced network support costs becausefewer network servers are managed and therefore fewer networksupport staff are needed to manage the servers.

* The Branch has completed the conversion to Windows 3.1 (with theexception of the House and Senate, which are planned for conversionafter the 1997 Session). The Windows 3.1 interface providesincreased efficiency in accessing multiple applications and in learningnew applications. Windows 3.1 was also necessary to begindeveloping Oracle client/server systems.

* The process of analyzing SBAS data for audit purposes was enhancedby developing an Oracle client/server system. The system allowsaudit staff to easily analyze agency SBAS transactions at the desktopand improves staff ability to investigate various transactions ortrends.

* The three separate employee time and cost accounting systems in theBranch were combined into one system for the Branch using Oracle. The Central Services Office now uses only one system for employeetime and cost accounting, resulting in a savings of staff time.

* A Branch system was developed to track requests for Branch staff toresearch and provide information on various topics. This systemdocuments these requests for future historical reference and helpsBranch agencies track instances of duplicate requests for information,thus reducing the effort to respond to these requests.

* The Branch has consolidated the IT function within the Office ofLegislative Information Technology. Consolidation of this functionprovides for greater efficiency in the use of IT FTE and provides aprofessional staff with career progression opportunities.

* The bill text, journal text, and bill status information for bills from the1995 Session were made searchable and put on a CD-ROM fordistribution.

* Access to the Internet was provided for Branch staff. The Internetcontains information that is valuable for the research and analysisprocess. Several information providers in the future will be providingtheir information only through the Internet. In addition, the Internetcan be used to send information to other users of the Internet. Forinstance, the National Council of State Legislatures staff are on theInternet and can send and receive e-mail to the Montana LegislativeBranch staff.

* The Branch has a home page on the Internet. Several parts of thispage are under construction, Nevertheless, enacted bills, journals, andthe combined history and final status from the 1995 Session areavailable and searchable. The text of the MCA is also available andsearchable. The 1997 Session bills, bill status, journals, and subjectindex will also be available through this home page via a connectionto the current BBS.

* Financial schedules for LAD are generated on the mainframe anddownloaded to the PC, and camera-ready is produced in eitherWordPerfect or Lotus. This has improved the readability of theinformation.

* Audit reports are standardized and formatted through a series ofWordPerfect macros. This has improved efficiency in producing thereports.

* The central IT staff, in conjunction with division networkcoordinators, performed maintenance and upgrades to hardware,software, and applications, closing over 400 requests for technicalassistance.
APPENDIX C Legislative Branch Standards

The following standards have been adopted for the Legislative Branch. Alllegislative divisions are required to follow these standards for new purchasesor to convert to these standards when it is most cost-effective. Thesestandards are periodically reviewed and updated as Branch needs or stateand computer industry standards change.

 Application  Standard

 Word Processing  WordPerfect
 Spreadsheet  Lotus 1-2-3
 Data base  Oracle for large and midlevel developmentprojects. Lotus Approach for low-enduser development and data analysis.
 Desk Top Publishing  Ventura Publisher
 Graphics  Freelance
 Desktop OS  DOS/Windows 3.1, Windows95/Windows NT
 3270 Emulation  Attachmate EXTRA!
 E-Mail   Zip!Mail/ZIP!Office
 Modem hardware  Hayes compatible
 Dialup software  PC Anywhere
 LAN Operating System Novell NetWare
 Computer Hardware  State Term Contract IBM compatibles

All legislative divisions are to maintain the same release level for eachsoftware standard. To date, divisions are on the same release of allsoftware. Transition from older software applications to current standards isprovided for in the plan.

APPENDIX DUser Box

APPENDIX E IT Impact on FTE

(Excerpt from "Legislative Branch Computer Network Funding Issues,Background on Legislative Branch Computer Use" by Robert B. Person, January30, 1993)

Since automating a process allows work to be done much faster, it naturallyfollows that it should take fewer people to do the work. Authorizing agenciesfrom corporate boards to legislatures thus ask how many people can bereplaced if authority to buy machines is granted. This is a perfectly logicalquestion, yet information processing professionals everywhere try to deflect thequestion when it arises. Why? Let's look at a couple of examples based on theexperience of the Montana Legislature.

In 1967, the Legislature hired its first Fiscal Analyst. He had no centralaccounting system to use, much less an automated one. Much of his first yearof employment was spent answering one question - how much money does thestate spend on travel? Now, with a standardized statewide budgeting andaccounting system residing on the mainframe computer, and sophisticatedsystems for extracting information, we have an Office of Fiscal Analysis. Clearly, the Fiscal Analyst can now perform more studies in a year than merelycompiling the cost of state travel. Has automation played a role in staffinglevels?

In 1972, the Legislature installed a program on the mainframe computer thatwould allow retrieval of statute text, storage of bill text on the computer,alteration of both statute and bill text, and control the printing of bills. Rulesadopted in 1973 required bills to be processed by the system prior tointroduction, or in a few instances, after introduction but before going tocommittee. In 1971, the current Senate taxation room was completely filledwith engrossing and enrolling typists (approximately 25 to 30) who workedfrom early in the morning until late at night to type bill text. No errorcorrections were allowed, so an error anywhere on a page required completeretyping. Upon installation of the computer system, the staff was reduced to12, including those who originally typed the bills and those who typed thejournals. In 1993, five people support a far larger number of bills and performa number of additional duties as well. Fewer people do more work with fargreater accuracy. The system enabled the legislature to make major changesin bills, yet have them back letter-perfect for consideration the next day. Maintenance of computing machinery and training of the people who use it areessential expenses of today's legislative process.

Dramatic changes in the number of people working in an area can occur inconjunction with increasing automation. Some of those changes may resultfrom increased productivity, while others may result from increased workassignments regardless of productivity. It is generally recognized thatautomation has allowed vastly increased duties to be accomplished by officeworkers without a proportional increase in the number of people needed to dothe work. That is why staff reductions are seldom a direct consequence ofautomating office work. It can only be said that each person working willproduce more with higher quality in terms of completeness and accuracy thanwould otherwise be possible.

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