Case Study:

Areas of Expertise (AOE) and Organizational L&D Maturity Matrix for U.S. Citizenship and Immigration Services (USCIS)

Robert Atchison G.P. Fortuna Ralph Hameni-Bieleu Josiland Sledge University of Maryland, University College (UMUC)

Abstract This article analyzes the organizational learning and development maturity of the US Citizenship and Immigration Services (USCIS) to evaluate if the organization can successfully implement new Q-Flow software training, and deliver it virtually to over 2,000 officers within the Agency. The 2013 ASTD Competency Model was created and refined by American Society of Training & Development (ASTD) to define a standard for excellence and professionalism the training & development field (Arneson et Al., 2013).The analysis analyzes USCIS learning function in the ten Areas of Expertise (AOE) of the ASTD competency model to evaluate the different stages of maturity/capacity and the results are presented in a form of a maturity matrix .

Case Study: Areas of Expertise (AOE) and Organizational L&D Maturity Matrix for U.S. Citizenship and Immigration Services (USCIS)

U.S. Citizenship and Immigration Services (USCIS), under The Department of Homeland Security (DHS), meets the needs of immigrants seeking citizenship to the United States of America. For the frontline USCIS officers who help meet this need, USCIS has its own Learning Management System (LMS) named the Learning EDGE, used for both requisite compliance and foundational competencies training. The LearningEDGE offers unique features such as books-online, eLearning courses, live technical help, job aids, and more to various USCIS federal employee and contactors. However, due to a diversity of roles, responsibilities and focus among its various personnel, some training must be ad hoc. For this case study, we will examine USCISs organizational learning and development capability and evaluate its stage of maturity as a learning organization to determine if it has the resources to successfully implement new Q-Flow software training, delivered virtually to over 2,000 officers within the Agency. USCIS is deploying the latest version of Q-Flow software throughout its 87 offices in a constrained period of time. Training will be delivered solely virtually through a series of AT&T connect webinars. Currently, USCIS personnel throughout the U.S. and its possessions, use Q-Flow version 3.2. USCIS is updating these offices to version 5.7 which represents a major change in application features and functionality and a new interface. Moreover, approximately 70% of all current users have never received formal training in the use Q-Flow (G.P. Fortuna, personal communication, October 25, 2013). Q-Flow software is a commercial off-the-shelf Case Management System that records customer interactions within USCIS Field Offices throughout the United States and its possessions. At its most basic level, Q-Flow is designed to visually model what happens when people (customers, patients, students, etc.) interact with the forces and circumstances at play in a customer facing, service oriented environment. A user of the software can test ideas, try different methodologies to solve problems, all

with the end goal of improving customer service, maximizing customer or patient flow and increasing satisfaction (Q-Flow, 2013). The purpose of this case study is to evaluate USCIS Areas of Expertise (AOE) as currently defined by the American Society of Training and Development (ASTD) model and determine USCIS current stage of maturity as a learning organization. In doing so, based on culled data and anecdotal evidence, this case study will determine if USCIS has adequate resources to successfully implement virtually delivered QFlow software training. AOE 1: Performance Improvement The American Society for Training & Development (ASTD) Competency Study describes the Performance Improvement area of expertise (AOE) as discovering and analyzing performance gaps, developing solutions to close those gaps, and working with customers to implement the solutions (Arneson, Rothwell & Naughton, 2013). Within this AOE, USCIS begins with workforce planning. USCIS (Drueen, 2012) follows a five-step process for workforce planning: 1. 2. 3. 4. 5. Link workforce and strategy Identify gaps in capacity and capability Develop action plans Implement action plans Monitor, evaluation, and revise the plan as needed

The USCIS Office of Human Capital and Training (HCT) ensures that the Agency has the appropriate staff with requisite workforce skills and competency requirements (Drueen, 2012). One competency, that isnt expressly stated but of upmost importance to the Agency is heart. Just as within

corporations such as Southwest Airlines, Disneyland and Wal-Mart, aside from any skill-specific competency the agency looks for in its candidates, it is this competency of the heart that may matter

most. Performing the duties of an Immigration Services Officer is an extraordinary mix of delivering exemplary customer service while keeping a vigilant eye out for our nations security (G.P. Fortuna, personal communication, October 25, 2013). Overall, the USCIS has a formal and working competency model that includes both hard and soft skills competencies. As with many public and private sector organizations that have a training function and as Laker and Powell (2011) note, soft skills are generally regarded as intrapersonal and interpersonal skills, whereas hard skills are generally regarded as technical skills those specific to ones job function. Between workforce planning and the competency model, the USCIS scores high on the ability to discover and analyze performance gaps. Within USCIS, individuals are valued over capability because fulfilled employees perform at a higher level than those driven by production requirements (Mayorkas, 2013). While the organization frames its core values of integrity, respect, ingenuity, and vigilance, it is the individual that gives these values life. The Agency believes that employees who embrace these values effectively fulfill our day -to-day mission and realize our long-term vision (G.P. Fortuna, personal communication, October 25, 2013). Further, USCIS (U.S. Citizenship and Immigration Services [USCIS], 2008a) believes that these values are the foundation for all that we do. Valuing individuals over capability means that the USCIS provides the environment for helping people identify their own performance gaps, and then close those gaps. The USCIS uses workforce planning data to identify and reduce skill gaps (Human Capital Management Report, 2012). Additionally, the USCIS uses retirement data as part of its analysis that informs strategies to address workforce gaps. They also participate in a Competency Advisory Team that communicates the agencys Competency Model to all units. They focus on gap reduction and closure through training, development, or other interventions as appropriate. (Drueen, 2012). As we look at the USCISs ability to deploy a new version of Q-Flow, it is helpful to understand the performance gap. The new version of Q-Flow includes interface changes, procedural changes, and policy

changes that all should be addressed during the training (G.P. Fortuna, personal communication, October 25, 2013). The main reason for this software upgrade is that the Department of Homeland Security (DHS) imposed technical security requirements would not allow the previous version to run on their newly upgraded server platform. As time is of the essence, that officers within the Agency after training are comfortable with the new version and can operate within effectively is all the return on expectations (ROE) the Agency seeks. The project will have less than seven months to locally install the software and hardware and virtually train well over 2,000 users. To not have taken such an aggressive stance would have left the Agency blind to the strategic data that Q-Flow captures and diminished the quality of the customer experience in local offices (G.P. Fortuna, personal communication, October 25, 2013). The USCIS has already identified the gaps, and it has demonstrated the ability to close those gaps through its corporate culture and focus on individuals (G.P. Fortuna, personal communication, October 25, 2013). AOE 2: Instructional Design The ASTD describes the Instructional Design AOE as designing and developing both formal and informal learning programs that align with organizational needs (Arneson et. al., 2013). G.P. Fortuna (personal communication, October 25, 2013), the person tapped to design and deliver Q-Flow training at the USCIS, has trained USCIS staff members in newly built offices throughout the U.S. Fortuna (personal communication, October 25,2013) notes that this experience has provided invaluable information as to who the learners are, what are their challenges, and how the software might be useful to them personally (G.P. Fortuna, personal communication, October 25, 2013). In the requirements phase, Fortuna worked with the business owner, the Chief of the Technical Coordination Branch, to determine the agencys need for this new version of Q-Flow. Fortuna also spent several months becoming an SME for Q-Flow. He attempts to answer the whats in it for me if I use it for the trainees as he facilitates

the course. The challenge and opportunity was to build in value so that they would also use Q-Flow efficiently and correctly (G.P. Fortuna, personal communication, October 25, 2013). An important part of Instructional Design is tying learning goals and activities to business strategy and goals (Arneson et. al., 2013). The USCIS Training and Career Development Division ensures training and organizational needs and requirements are aligned (USCIS, 2008c). During instructional design, Fortuna worked with the business owner to align training and business needs. Additionally, USCIS leaders from within the Field Offices maintain the strategy to achieve their goals through training. They really are a remarkable organization the Southwest Airlines of the government (G.P. Fortuna, personal communication, October 25, 2013). Southwest Airlines (2008), notable within the airline industry for delivering impeccable customer service, states, We operate with a Warrior Spirit [i.e. work hard and desire to be the best+, a Servants Heart *i.e. put others first and demonstrate proactive Customer Service], and a Fun-LUVing Attitude *i.e. enjoy your work and be a passionate team player+ (p.16) In developing the instructional design and the delivery of the virtual Q-Flow training, leveraging the culture of the Agency and maintaining a focus on its personnel was essential. Recently, USCIS ran a pilot program that removed production metrics from their dialogue. Production values were replaced with a spirit focused on quality which includes training, mentoring, teamwork, and collaboration. Employees were empowered to develop ideas that instill their qualities into a mission-centric and mission-based culture (Mayorkas, 2013). They conducted training sessions and introduced feedback programs that increased interaction between employees and supervisors (Mayorkas, 2013.) This was the genesis of USCISs culture one that helps make sure training and business needs align. In 2010, the USCIS started focusing more on distance learning programs to reduce travel costs ( CIS FY2011 Budget Hearing, 2010). The USCIS promotes continuous learning and provides learning resources. They view this promotion as an investment because they feel it improves organizational effectiveness (USCIS, 2008).

The USCIS designs in-person, online, and social learning programs and activities differently from each other. They are absolutely different, said Fortuna (personal communication, October 25,2013). One cannot port a classroom or face-to-face course into virtual delivery. Cindy Huggetts, author of several how-to books on virtual training, including Virtual Training Basics (ASTD Training Basics), notes that she helps teach classroom trainers how to transfer their delivery skills to the live online environment . . . [and] help instructional designers learn how to convert their courses into interactive virtual sessions. (Huggetts, 2013). Fortuna uses that and feels that he must interact with the learners every four minutes and encourage them to collaborate with me in their learning. Hes had to

restructure the original course to allow that to happen. The results were astounding! The value rating as assessed by the learners via their evaluation forms (a.k.a. smile sheets) jumped from seventy-six percent to ninety-nine percent (G.P. Fortuna, personal communication, October 25, 2013). AOE 3: Training Delivery The ASTD describes the Training Delivery AOE as delivering training that engages learners and produces desired outcomes (Arneson et. al., 2013). For Q-Flow training, Fortuna planned a two part learning experience (2013). The first was essentially a lecture, blended with game play, scenarios and questions from the learners. The second part of the course was the practicum the execution of several case-based scenarios which the learner will accomplish after the lecture. Training delivery includes helping learners construct their own understanding of the concepts and procedures. It also includes game play, collaboration, and real-world scenarios (G.P. Fortuna, personal communication, October 25, 2013). These concepts are again empowered by the USCISs learning culture. Learners also know that even though they were training at a distance, facilitators can see if theyre doing the practice scenarios. The Field Office with the most correct answers during the lecture, combined with their total number of completed scenarios and their response rate returning the digital evaluations wins an MBA certificate in Q-Flow Management and Administration (G.P. Fortuna, personal

communication, October 25, 2013). For learner support, Fortuna says that not only can trainees contact him during their deployment week, but at least one super-user is available at each field office that can provide additional coaching (G.P. Fortuna, personal communication, October 25, 2013; Smith & Drago, 2004). AOE 4: Learning Technologies The ASTD Competency Study describes the Learning Technologies area of expertise as identifying various technologies then selecting and adapting them appropriately to the specific training need (Arneson et. al., 2013) . USCIS has existing and emerging learning technologies identified and being implemented by the Agency using both web and telecom platforms for its learning activities. The Agency also has its own production studio to produce on-demand training materials. The training materials include the Training Master Plan for Q-Flow. These audio/visual, eLearning training materials are to be produced after February 14, 2014 after the Agency-wide deployment (G.P. Fortuna, personal communication, October 25, 2013). There are various technologies offered, that allow employees to collaborate with one another. For example, officers within the Agency use both Microsoft Office 2010 for group and individual communication. For uses outside of the office (i.e. text and email), officers use Blackberry electronics. Also, Microsoft Office Communicator is used for screen sharing and general troubleshooting (G.P. Fortuna, personal communication, October 25, 2013). There are various uses for Q-Flow, both formal and informal. It is used to manage the experience of customers, while also collecting data to assist with standardizing procedures within offices. Each individual office is allowed some liberty within Q-Flow to innovate locally (G.P. Fortuna, personal communication, October 25, 2013). AOE 5: Evaluating Learning Impact This is the evaluation and assessment facet of expertise. The ASTD Competency Study describes Evaluating Learning Impact area of expertise as the gathering, storing and analysis of returned data

(Arneson et. al., 2013). With the learning program, stakeholders provide input on what they hope will be accomplished during the requirements phase of development. According to Fortuna (2013): From the Agency Director, Alejandro N. Mayorkas, Director to the Field Operations Branch Chief (policy), to the Technical Coordination Branch Chief (logistical), the significant stakeholders have direct impact on the training program. With the exception of the Director, the stakeholders vet the presentation as well as its associated training materials. To input training measures and program evaluation, the stakeholders provided substantial input during the development period. This development period, lasts approximately one year. The program evaluation is then filtered up the leadership chain from the Field Office to its District. From the District, it travels to the Region and then passed to Headquarters. Headquarters are the primary stakeholders (G.P. Fortuna, personal communication, October 25, 2013). In order for a program to be evaluated, the data is collected, analyzed, and then measured. Fortuna explains that training evaluations are compiled using Adobe Acrobats form feature. At the conclusions of the classroom portion of the training and before the hands-on practicum, learners are asked to complete the digital evaluation form. This form looks at both the course content as well as its delivery. Only the form data is then transferred to the practitioners email account for compilation within Acrobat (2013). An Excel spreadsheet is created with the compiled data. From this data, the metrics within course content and delivery are assigned value ratings (V/R) which will be shared and discussed with stakeholders. Ultimately, an on-going evaluation Master sheet is maintained to compute the ratings and to identify baselines and deltas among course deliveries (G.P. Fortuna, personal communication, October 25, 2013). Evaluation findings are used to improve the learning program and are applied to future training programs. Fortuna mentions the practitioner compares value ratings between the traditional face-2-face

(F2F) course which averaged an overall rating of 93% vs. the virtual training (G.P. Fortuna, personal communication, October 25, 2013). Within the early stages of deployment, deltas - changes outside of the norm of historical data, revealed that the virtual training was broken. This allowed the practitioner with stakeholder support to adjust both course design and delivery. Now, the virtual course goes beyond the historical, classroom value rating, averaging a 99% value rating overall (G.P. Fortuna, personal communication, October 25, 2013). Learning performance is initially evaluated immediately following the course and its required practicum. Kirkpatricks steps three and four evaluations are done by local leadership and any anomalies are reported to headquarters and the practitioner through the leadership chain (G.P. Fortuna, personal communication, October 25, 2013). AOE 6: Managing Learning Programs The American Society for Training & Development (ASTD) Competency Study describes Managing Learning Programs area of expertise (AOE) as providing the leadership to execute strategy, monitor its results and adjusting as necessary (Arneson et. al., 2013). As a government agency, all budgets for USCIS must be recorded with the Office of Management and Budget (OMB) and then reported to Congress for approval. What makes USCIS different than most agencies in the government is that their work is 95% self-funded through the collection of fees. The public data provided for the budget dates from 2008. During this time, the budget was set at $2.5 billion and leadership appropriated approximately $37.4M of that towards its L&D function. USCIS management communicates and interacts with its employees through various learning programs. For example, management uses Microsoft SharePoint to create multiple, role specific portals for communication. There are regularly scheduled Town Halls with the Director viewed either via telecom or web to address mission. During the Town Halls, the vision and values within the Agency, as well as any new initiatives are discussed. These are all considered learning programs. AOE 7: Integrated Talent Management

The American Society of Training & Development (ASTD) identifies this area of expertise where the company builds an organizations culture, engagement, capacity through the implementation and integration of talent acquisition, employment training, and retention (Arneson et al., 2013). USCIS does just that with the management of talent acquisition via the USAjobs.com website. After a candidate has been chosen for a particular position, the employee participates in training for about ten weeks. He attends a 6-week BASIC training program in Dallas, Texas, a 1-week Practicum at the National Benefits Center in Lees Summit, Missouri, and a one week Practicum at either a District Office or Service Center. These trainings are put in place to provide employees with the necessary skills. During the training and practicum, new recruits will be provided with the skills needed to adjudicate applications and petition (G.P. Fortuna, personal communication, October 25, 2013, n.p.). To increase retention of employees, the agency allows promotion within the organization. Employees can apply for the different open positions that they are deemed qualified based on experience, and education. The agency leveled the playing field for everyone by publishing some materials and transparent hiring guidelines. These guidelines instruct the managers, or any hiring authority, how to proceed (Mayorkas, 2013). The agency is also building the organizations cultu re and engagement by implementing the Driven Quality Workplace pilot where several field offices made some changes on work assignments, communication, and schedules. Mayorkas (2013) conveys The pilot engaged and empowered employees and it gave them more autonomy over the day to day work that they do. The employment training is implemented through formal and informal learning LearningEDGE, a learning portal that all USCIS employees and well as most contractors may access. From this portal, courses that are role or job specific can be taken by the employee to either meet existing requirement or enrich current capability (G.P. Fortuna, personal communication, October 25, 2013). AOE 8: Coaching

The American Society for Training & Development (ASTD) Competency Study describes the Coaching area of expertise (AOE) as an interactive process by which employees may progress more rapidly assistance from organizational coaches (Arneson et. al., 2013). Coaching and mentoring networks exist within the agency. Fortuna (2013) wrote, USCIS offers its learning portal, LearningEDGE for enrichment and advancement. Further, upon merit and nomination, individuals may be placed in fasttrack programs, accelerating their advancement and position within the agency. In addition, coaching, mentoring, and peer-support are incorporated into the instructional design. Fortuna (2013) said, Learners are afforded a full week past the initial instruction to interact with the practitioner and Subject Matter Expert (SME) on the use of Q-Flow as well as its possibilities. Often this means one-onone coaching by email or phone. Coaching competencies are used in the different interactions across the different mentoring program. G.P. Fortuna, the Subject Matter Expert (SME) who designed the training on Q-Flow said: The SME utilizes the core skills of communication, client motivation, selfmanagement with technical ability. Ethical and other standards of conduct are the same as those prescribed by the Agency. All personnel are required a yearly refresher in such matters. (G.P. Fortuna, personal communication, October 25, 2013) AOE 9: Knowledge Management The American Society for Training & Development (ASTD) Competency Study describes the Knowledge Management area of expertise (AOE) as the collection, archiving and distribution of institutional knowledge (Arneson et. al., 2013). Leveraging the learning portal, LearningEDGE with role specific SharePoint sites, allow those with similar goals and interests to access information needed. Within USCIS, informal learning is encouraged throughout the workforce. Fortuna says, the exchange of knowledge between peer groups is greater than that generally seen in the private sector. The Driven Quality Workplace pilot is an initiative implemented to increase communication, build teamwork, and peer-to-peer collaboration within the different field offices.

Social media is controlled by the agency to share more globally. Fortuna says: USCIS is a quality driven, value based operation. It used operation specific SharePoint communities maintained on their network. Elements of knowledge management such as capture, distribute and archives of intellectual capital in a way that encourages knowledge sharing and collaboration in the organization (Arneson et al., 2013) are identified in the agency. Fortuna says, social learning in the form of on-the-job training, formalized apprenticeship, institutional depositories of resources and libraries as well as professional training delivered by ATSD certified in-house personnel and mentoring programs are abundant. LearningEDGE, the agencys learning portal, will be used in the training for Q-Flow according to G.P. Fortuna to allow just-in-time learning- 24/7 for any new learners. AOE 10: Change Management The American Society for Training & Development (ASTD) Competency Study describes the Change Management area of expertise (AOE) as the management of individuals, teams and the organization from one state to another (Arneson et. al., 2013) For the individual, USCIS maintains a repository of what is required, what is role specific and what is desired through its HTC and training portal, LearningEDGE. Courses for personal development are available through its LearningEDGE/ Skillsoft and merit nomination systems. Those identified as leaders are marked accordingly for additional enrichment within the agency. As mentioned previously, the Quality Driven Workplace initiative launched Agency wide in 2013, leverages all stakeholders, resources and personnel to effect the necessary change in how the Agency will operate in the future based on this initiative. Maturity Model The Stages of Organizational L&D Maturity Matrix for USCIS (Table 1) describes the steps of improvement for LearningEdge. There are four Stages: Ad Hoc; Consistent Events; Institutionalized L&D; and Enterprise Learning. To support management and enable improvement, performance assessments

are commonly used. One way of assessing organizational capabilities, is by means of maturity grids (Maier, Moultrie, & Clarkson, 2012, p. 138).

Conclusion It is evident from the examination of the ten Areas of Expertise as well as the stages of Organizational L&D matrix (Table 1) that exist within USCIS that it is poised for success in its endeavors. Perhaps its greatest challenge will be how it uses these competencies to successfully negotiate its most recent and ambitious initiative, the Quality Driven Workplace as unveiled by its Director, Alejandro Ali Mayorkas. Furthermore, based on initial data compiled from participant evaluations generated at the conclusion of Q-Flow virtual training events held this far, it appears that the Agency has surpassed historical data relating to its previous face-2-face training in support of this evidence.

Table 1: Stages of Organizational L&D Maturity Matrix for USCIS (Case Study) Stage 1 Ad Hoc Main Tools/Technology LearnersEDGE Stage 2 Consistent Events Requisite learning: Security & Privacy training Stage 3 Institutionalized L&D USCIS Boot Camp Immigration Officers (requisite immigration law.) Stage 4 Enterprise Learning Merit Advancement: learner advancement and acceleration. Advanced, position specific training (detail)

Jobs/Roles/Competencies Requisite Training Primary Analytics Predictable costs

Role Specific Training Quantitative & Qualitative

Advanced Training Competency-based (merit/nomination) Talent Management Role Specific. ROI for foundational competencies; ROE For specialized competencies Business Results through L &D and specifically the Organizational Worth to meet the mission of the Agency

Primary Drivers

Reduce Risks

Change Readiness

Learning Aligned with Business Strategy and Execution as evidenced by the Quality Driven Workplace initiative Agile or Kanban Learning vs. Waterfall approach. Quality Metrics initiative as prescribed by the Director. Analysis What is essential to the mission of USCIS? Quality driven workforce.

Learning Process

As per Planned Kirkpatricks Four levels: Reactive Branch USCIS Field Operations (Policy) Field Operations Information What is necessary to mark as data points?

Strategic

Business Structure Focus

Learning Culture (Agency-wide)

Decision Support Business Owner Technical Coordination Branch

Data What is essential to business operations?

Institutional Knowledge What is essential to capture in the data to make strategic decisions?

References

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