Panel recommends SSA continue with mainframe modernization

The Social Security Administration should press on with a project to convert its assembler language-coded master file database into an IBM DB2 mainframe database, despite the fact that other technical approaches "might have been better choices," says an SSA-funded panel.

The Future Systems Technology Advisory Panel, chaired by Alan Balutis of Cisco Systems, issued in May a report on an SSA database modernization effort begun in 2005 that's projected to continue until at least 2013. Although the report is publicly available on request, SSA has not posted it online; you can read it on our site here.

In the report, the panel acknowledges concerns that the DB2 data architecture may limit SSA from supporting web-based technologies. But, it concluded that SSA should just consider bringing in outside experts to review the data models with an eye to allowing the greatest degree of openness and flexibility possible. Industry group Computer and Communications Industry Association had recommended that SSA halt the conversion project and reconsider the technical architecture. The CCIA, of which IBM is not a member, often decries  what it calls IBM's mainframe monopoly.

"Given the substantial investment and clear progress SSA has achieved in the current program, the FSTAP does not recommend stopping to consider other technical alternatives at this time," the report states.

SSA began converting data in its Master Data Access Method (MADAM)  file management system in 2005 as part of a multiple phase project (either two or three phases, depending on who's counting, the SSA or the inspector general) to replace the database and its interface. MADAM was developed in the early 1980s.

SSA did not conduct an analysis of alternatives for replacing MADAM, according to a May 2010 SSA inspector general report. SSA staff chose DB2 because SSA in general uses DB2 mainframe applications, the report states. "According to agency staff, SSA is an IBM shop in which the vast majority of its processing occurs on the mainframe," it adds.

A 2007 report on SSA technology from the National Research Council states that the SSA did hire a contractor to explore alternatives, but that the contractor happened to be Springfield, Ill.-based Yevich, Lawson and Associates, which describes itself as "the leading DB2 consulting and education company worldwide."

The inspector general also says that SSA does not consider the conversion effort a "major information technology investment," a conclusion that the inspector general disagrees with since the continued availability of data such as citizen earnings or a records of each individual who as applied for Supplemental Security Income is "critical to SSA's mission and function." The SSA lacks a strategic plan for phases beyond the initial data conversion stage, the IG report adds.

According to the inspector general, during phase 2 the SSA will shift application data calls away from the MADAM interface to a new DB2 application programming interface, while also modifying applications that are built around MADAM's compressed data to accept the DB2 database's uncompressed data.

During phase 3, which the IG says SSA considers as a separate project, SSA will rewrite all applications to access DB2 data directly. SSA application programs were written in COBOL and the SSA also has an effort underway to convert them into a more modern programming language, an effort the IG says SSA should consider integrating with Phase 3.

For more:
- read the Future Systems Technology Advisory Panel May 2010 report 
- download the May 2010 SSA inspector general report (.pdf)
- download National Research Council 2007 report on SSA technology (.pdf)
- download a November 2009 CCIA report on social security databases (.pdf)

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