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FederalITModernizationNeeds
aStrategyandMoreMoney
ERICEGAN|MAY2022
Despiteaplethoraoflegislation,executivemandates,andotherpolicyguidancetomodernize
agingfederalITinfrastructure,agenciesstillneedaccesstodedicatedITfundingchannelswith
moremoneyandanoverarchingITstrategytohelpguidetheminhowtheyfundITinitiatives.
KEYTAKEAWAYS
?
Withoutaccesstogreaterandquickerfunding,agenciesarefallingshortintheirIT
modernizationinitiatives,spendingalmost80percentoftheirITbudgetsonoperations
andmaintenance(O&M),comparedwitharoundhalfintheprivatesector.
?
OnlyahandfuloffederaldepartmentsandagenciesareutilizingdedicatedITfunding
channels,suchastheTechnologyModernizationFund(TMF)andITworkingcapital
funds(WCFs).
?
OnlyasmallpercentageofthethousandsofactivefederalITprojectsareincollaboration
withotherfederalagencies—eventhoughmanysharethesamechallenges—indicatinga
needforamorecoordinated,overarchingapproachtoITmodernization.
?
AclearlydefinedfederalITstrategypairedwithmoremoneythat’sdistributedthrough
expandeddedicatedITfundingchannelswouldhelpaccelerateITmodernizationinthe
federalgovernment.
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE1
CONTENTS
Introduction 2
ABriefHistoryofFederalITLegislation,Mandates,andPolicy 3
OverviewofFederalITFundingChannels 5
CongressionalAppropriation 5
ITWorkingCapitalFunds 6
TechnologyModernizationFund 6
OtherITFundingChannels 7
SummaryofITFundingChannels 8
TheStateofFederalITModernizationFundingandSpendingActivities 8
ImpedimentstoFederalITModernization 10
Problem1:NoOverarchingFederalITStrategy 10
Problem2:InefficientandInaccessibleFundingChannels 10
Problem3:InsufficientFundingtoEscapeTechnicalDebtandO&MCosts 11
Recommendations 11
CreateandFunda“WholeofGovernment”ITStrategyBuiltAroundMissionand
CustomerOutcomes 11
AppropriateMoreMoneytotheTMFtoAddressTechnicalDebtandLegacySystems 12
PublishNewGuidelinesThatImprovetheTMF’sAdministrativeandOperational
Components 12
EstablishITWCFsAcrossAllEligibleAgencies 13
RealignExistingorImplementNewOversightActivitiestoEnsureFederalAgencies
MeetOverarchingStrategicOutcomes 13
Conclusion 14
Endnotes 15
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE2
INTRODUCTION
TheU.S.federalgovernmenthasbeentryingtooverhaulitsITinfrastructurefordecades.Attheendofthe20thcentury,whendigitaltechnologywasgrowing,IT’sabilitytotransformenterprisesbecameundeniable—anditwascleartechnologywouldimpactallspheresofAmericanlife,includinggovernmentservices.Inmostrespects,ITisnotapoliticallycontentiousissue,asmembersofCongress,agencybureaucrats,outsideexperts,averagecitizens,andformerpresidentsfrombothpartiesagreethatfundingITmodernizationisessential.Lastyear,PresidentBidencalledtheneedtoupgradefederalITinfrastructurean“urgentnationalsecurityissue,”particularlyinthecontextofthethen-ragingglobalpandemicthatrevealedlacklustertechnologyacrossalllevelsofgovernment.
1
Sincethatannouncement,thepresidenthaspassedtwoexecutiveordersapplicabletofederalITmodernizationthatfocusonimprovingcybersecurityandtransformingthecustomerexperience.
2
Thiswasontopofaswathoflegislationoverthepast30yearsfocusingonfederalITmodernization,fromearlierlawsliketheInformationTechnologyManagementReformActof1996tothemorerecentModernizingGovernmentTechnology(MGT)Actof2017.
3
Allinall,there’snoshortageofguidanceorlegislationregardingfederalITmodernization.Tocomplywiththesemandates,however,agenciesneedmoney,whichtheyaccessprimarilythroughcongressionalappropriationbutalsothroughdedicatedITfundingchannelssuchastheTMF.
ModernizingfederalITsystemsisanexpensiveendeavor.ProponentsoflargerITbudgetshavepointedtocostlylegacysystems,poorlydesignedpublic-facingwebsites,cybersecurityconcerns,andtheneedtoinvestindataanalyticsandautomationtokeeppacewiththedemandforgovernmentservicesinhopesthatitconvincesCongresstoloosenitspursestrings.
4
Andyetdespitethisneed,ITfundingremainsoverinvestedintechnicaldebt—thehiddencostofmaintainingexistingsoftware—andinefficientlydistributedacrossavarietyofpriorityareasandsiloedprojects,andfederalagencieslackanoverarching,cross-cuttingstrategytoguidetheirITspending.Infact,whilemostagencieshaveahighnumberofactiveITprojects,evidencesuggeststhatonlyasmallpercentageofthoseprojectsareincollaborationwithotheragencies.ExceptfortherecentAmericanRescuePlan(ARP)thatarosefromtheCOVID-19pandemic,historicalITinvestmentthroughthecongressionalappropriationprocesshasbeeninsufficienttoshiftawayfromexpensivelegacysystems,letaloneaccomplishmoreforward-lookingITmodernizationefforts.
5
Furthermore,currentfundingchannelsaren’teffective,asthey’reeitherill-suitedforiterativeITdevelopment(e.g.,congressionalappropriations)ornotreadilyavailabletomostagencies(e.g.,TMF).
Finally,withoutadefined,overarchingfederalITstrategythatbothfocusesonmissionandfederalcustomeroutcomesratherthanjusttechnologyitselfandguidesagenciestomodernizeinthesamedirectionand,wherepossible,withsharedsystems,theseeminglyendlessandfruitlesseffortregardingfederalITmodernizationwillpersist.Toaddresstheseproblems:
?
?
TheOfficeofManagementandBudget(OMB)shouldimplementalong-term,sustainable“wholeofgovernment”ITstrategywithprioritiesbuiltaroundmissionandcustomeroutcomes,andCongressshouldfundITinitiativesthatalignwiththeseoutcomes.
Congressshouldappropriate$10billiontoaddressthefederalgovernment’stechnicaldebtandreplacecostlylegacysystems,whilealsoexpandingtheTMF.
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE3
?
?
?
TheTMFboardshouldpublishnewguidelinesthatclarifywhichprojectsmeettheirprioritizationthresholdforflexiblerepayment,realignitsprioritieswiththeoverarchingfederalITstrategy,andsharehowagencieswillreceivecentralizedprojectsupportfromOMBandtheGeneralServicesAdministration(GSA).
FederalagenciesandCongressshouldworktogethertoestablishITWCFsacrossall24ChiefFinancialOfficers(CFO)Actagenciesassoonaspossible.
OMBshouldimplementoversightactivitiestoholdagencyChiefInformationOfficers(CIOs)accountableforITprojectsuccess—particularlythosefundedthroughtheTMForITWCFs—regardingcostsavingsandmeetingoverarchingstrategicoutcomes.
ABRIEFHISTORYOFFEDERALITLEGISLATION,MANDATES,ANDPOLICY
FederalITmodernizationhasbeenperpetuallytopofmindinWashingtonDC,particularlytowardtheendofthe20thcenturywhenitbecamepatentlyclearthatITwouldbeafundamentalcomponentofgovernmentoperationsinthefuture.Yet,inthe1990s,federalITinfrastructurewasalreadywoefullyoutdated,withenterprisesoftwarealreadydecadesold—andsomeofthosesystemsarestillinplacenow.
6
It'snosurprisethatlegislatorsbeganfocusinginearnestonpassinglawsthatwouldaddressthefederalgovernment’sITshortcomings.
ConsidersomeofthekeyIT-relatedlaws,programs,andmandatesaimedatfederalagenciesoverthepast30years.
Legislationinthe1990sandearly2000senactedkeyadministrativecomponentsforfundingITmodernization,includingeffortstoimprovefinancialmanagementacrossthefederalgovernmentandtheestablishmentoftheagencyCIOandFederalCIOroles.Congressalsobeganpushingfederalagenciestobroadlyadoptdigital,Internet-basedtechnologytoenhancepublicservices.
?
?
?
?
?
CFOActof1990:Aimedtoimprovethefederalgovernment’soverallfinancialmanagement,includingITfundingandspending,byidentifying24CFOActagenciesthatareaccountabletoOMBfinancialoversight.
7
InformationTechnologyManagementReformAct,orClinger-CohenAct,of1996:SoughttoimprovehowthefederalgovernmentmanagedITandestablishedtheroleofagencyCIOs.
8
GovernmentPaperworkEliminationActof1998:Mandatedfederalagenciestobothofferelectronicsubmissionofinformation,includingutilizationofelectronicsignatures,andmaintainelectronicrecords.
9
E-GovernmentAct,orE-GovAct,of2002:EstablishedtheroleoftheFederalCIOwithinOMBandspecifiedaframeworkforfederalagenciestouse“Internet-basedinformationtechnologytoenhancecitizenaccesstoGovernmentinformationandservices.”
10
ThislawalsocreatedtheE-GovernmentFund,whichwouldlaterbesucceededbytheFederalCitizenServicesFund(FCSF).
11
M-05-04,PoliciesforFederalAgencyPublicWebsites(December17,2004):Directedfederalagenciestocomplywithpoliciesaroundpublic-facingwebsitespertheE-GovActof2002,includinginformationquality,high-leveldesign,andsecurityprotocol.
12
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE4
MorerecentlegislationandpolicyfocusonspecificpriorityareasinfederalITmodernization,includingcybersecurity,cloudmigration,mobile-firstanduser-centereddesign,andopendata,andhavebegunintroducingnew,moredirectITfundingchannelsoutsideofthetraditionalbudgetcycle.
?
?
?
?
?
?
?
?
?
?
ExecutiveOrder13571,StreamliningServiceDeliveryandImprovingCustomerService(April27,2011):Emphasizeduseof“theInternetormobilephone”and“innovativetechnologiestoaccomplish…customerserviceactivities.”
13
FederalRiskandAuthorizationManagementProgram,orFedRAMP,2011:Establishedastandardizedapproachtoassesscloudservicesforusebythefederalgovernment.
14
DigitalGovernmentStrategyof2012:Attemptedtoimplementastrategicplanaroundthefederalgovernment’suseofdigitaltechnology,withobjectivesfocusingonaccessviamultipleplatforms,securesharedservices,anddata.WhilethestrategyincludesadirectiveforGSAto“identifytoolsandguidanceformeasuringperformanceandcustomersatisfactionondigitalservices,”thestrategyitselfdoesn’tspecifymetricsoroutcomes.
15
FederalInformationSecurityModernizationAct,orFISMA,of2014:Originallyenactedin2002,FISMAdemonstratesthefederalgovernment’scontinuedcommitmenttocybersecuritythroughstandardsandguidelines.
16
FederalInformationTechnologyAcquisitionReformAct,orFITARA,of2014:OverhauledfederalITpurchasing,includinginitiativesarounddata-centerconsolidationandreductionofduplicativeIT,andalsostrengthenedtheroleofagencyCIOsbyputtingtheminchargeofITinvestments.
17
M-17-06,PoliciesforFederalAgencyPublicWebsitesandDigitalServices(November8,
2016):Providedfederalagencieswithpoliciesregardingpublic-facingwebsitesin
alignmentwiththe2012DigitalGovernmentStrategy,includingdigitalgovernanceand
informationquality;analyticsanduserfeedback;accessibilityandusability;data
transparency;mobile-friendliness;andprivacyandsecurity.
18
ModernizingGovernmentTechnologyAct,orMGTAct,of2017:Supportsfederalagency
investmentinmodernizingITviathenewlycreatedTMFandauthorizesagenciesto
establishITWCFs.
19
Open,Public,ElectronicandNecessaryGovernmentDataAct,orOPENGovernmentDataAct,of
2018:Expandsfederalopendatapolicybyrequiringagenciestooperateas“openby
default”regardingpublishinginformation.
20
ConnectedGovernmentActof2018:Requiresallnewandredesignedfederalagency
websitestobemobilefriendly.
21
21stCenturyIntegratedDigitalExperienceAct,or21stCenturyIDEA,of2018:Focuseson
improvinggovernmentcustomers’digitalexperiencewhenaccessingpublic-facingfederal
websites.
22
Withinthepastyear,theBidenAdministrationhasreemphasizedattentiontothesepriorityareasinfederalITmodernizationthroughahandfulofexecutiveorders,namelywithrespecttocybersecurityandcustomerexperience.
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE5
?
?
ExecutiveOrder14028,ImprovingtheNation’sCybersecurity(May12,2021):Chargesfederalagencieswithenhancingcybersecurity,includingsecurecloudsolutions,zero-trustarchitecture,andmultifactorauthentication,aswellassoftwaresupplychainintegrity.
23
ExecutiveOrder14058,TransformingFederalCustomerExperienceandServiceDeliverytoRebuildTrustinGovernment(December13,2021):Directs17federalagenciestoputcustomersatthecenterofservicedelivery,encouraginguser-centereddesignregardingdigitaltechnology.
24
Insummary,thehistoryofITlegislationoverthepast30yearsshowsanawarenessofutilizingemergingtechnologytoimprovegovernmentservicesandmodernizefederalIToverall,whilealsoinstitutinggreateraccountabilityandoversightoverfederalIT.However,whilemanyoftheselawsandpolicieshavestrengthenedITleadershiproles,theyhavenotprovidedclear-enoughguidancetoagencyCIOsandotherITleadersregardinghowtechnologyshoulddirectlysupportmissionandcustomeroutcomesmeasuredacrossthewholeofgovernment.Inotherwords,despiteshort-livedeffortssuchastheDigitalGovernmentStrategyof2012,thereisnoactive,sustainablefederalITstrategythatofferscross-cutting,inter-agencyguidancetowardspecificoutcomes.Lastly,forfederalagenciestocomplywithlawsandmeetmandates—bothofwhicharetypicallyunfunded—orgenerallyperformanyfunction,theyneedmoney.
OVERVIEWOFFEDERALITFUNDINGCHANNELS
TherearefewwaysfederalagenciescanacquiremoneytofundITinitiatives,andtheyallhavedownsidesintacklingtheongoing,monumentaltaskofITmodernization.ThemostcommonvehiclethatoffersthegreatestpoolofmoneyisCongressionalappropriation.However,thebudgetcycletakestime,currentlyofferingfundingforinitiativesrequesteduptotwoyearsago.Otherchannelsprovideaccesstofundsoutsidethebudgetcyclebuthavefarlessmoneytoofferandarecurrentlyinaccessibletomostfederalagencies.
CongressionalAppropriation
Congressisresponsibleforbothauthorizingfederalprogramstooperateandappropriatingfundstosupportthoseprograms.
25
MoneythatiseventuallyspentonITmayberolledintoanappropriationsbillforanoverarchingprogram(e.g.,$1billionfortheDepartmentofHealthandHumanServicesforthenewAdvancedResearchProjectsAgencyforHealth,orARPA-H)ormaybespecificallyearmarkedforIT(e.g.,$2.5billionfortheVeteransElectronicHealthRecordsystem).
26
Thecongressionalbudgetprocessiscomplexandslow.
27
Foragivenfiscalyear,OMBstartsworkingonthebudgetinthespringorsummeroftheprioryear,andagenciesmaynothavefundsforaparticularprogramorinitiativeforanothertwoyears.Congresspassedthe$1.5trillionomnibusspendingbillinMarch2022forfiscalyear(FY)2022thatstartedOctober1,2021,afterpassingfourcontinuingresolutions(CRs)toprovideshort-termfundingatFY2021levels.
28
TheseCRsanddelayedbudgettimelinescanimpacttheprogressoffederalITmodernizationbypreventingprocurement,delayinghiring,andrequiringagenciestoinvestinold,existingITratherthanmovingforwardwithnewinitiatives.
29
Indeed,thefederalgovernmentinvestsnearly80percentoftheapproximately$80billionspentannuallyinfederalITonO&Mactivitiesthatfocusprimarilyonmaintainingexistinglegacyapplications.Giventhat
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE6
congressionalappropriationisbyfarthemostcommonmethodofsecuringITfunding,thefactthatit’sbothtooslowandoverinvestedinO&MimpactsthepaceoffederalITmodernization.
ITWorkingCapitalFunds
Otherfundingchannelscanofferagenciesaccesstopotentiallymillionsofdollarsoutsidethecongressionalbudgetcycle.TheMGTActauthorizedeachofthefederalagencieswithCFOs(pertheCFOActof1990)toestablishITWCFsthatcanonlybeusedoncost-savingITmodernizationefforts,suchasimprovingorreplacinglegacysystems,enhancingcybersecurity,andtransitioningtocloudcomputing.Asabroadconcept,WCFsaretypicallyfundedthroughfeesorrevenue-generatingactivitieswiththegoaltobeaself-sustainingsourceoffundingtopayforotheragencyneeds.
30
TheideaisthatagenciescouldtransferdiscretionaryfundstotheseITWCFsfordesignatedITinitiatives,particularlythosethatrequiremultiyearcashinjections,asmanylarge-scaleprojectsdo.Thisisparticularlyhelpfulasanalternativetotraditionalappropriation,which,asthepriorsectionofthisreportexplains,isslow,oftendelayed,andrestrictiveinhowagenciescanspendfortheirITinitiatives.
EstablishingagencyITWCFshasproveneasiersaidthandoneasCongresshasonlyapproved twoasofApril2022—oneattheSmallBusinessAdministration(SBA)andoneattheOfficeofPersonnelManagement—withtheDepartmentofLabor,theU.S.AgencyforInternationalDevelopment,andtheDepartmentoftheTreasuryrequestingITWCFsfor2023.
31
PeritsFY2023budgetrequest,SBAexpectstohaveover$3millioninitsITWCF.
32
ManyagencieshaveexistinggeneralWCFsthatcanbeleveragedforITprojects,buttherequirementsforhowtheycantransfermoneyandwhentheycanspendit(i.e.,usingallthefundsinoneyearoracrossmultipleyears)varywidely.
33
ThesegeneralWCFswerenotdesignedtoaccomplishthekindof ITmodernizationactivitiesspecifiedforITWCFsintheMGTAct,norcantheybeusedto“reimburseamountstransferredtotheagencyfromtheTechnologyModernizationFund”likethedesignatedITWCFscan.
34
TechnologyModernizationFund
TheMGTActalsoestablishedtheTMF,agovernment-widerevolvingfunddesignedtofocusmoreonbroader,collaborativefederalITinitiatives.ChairedbytheFederalCIOfromOMBandwithpermanentmembersfromGSAandtheDepartmentofHomelandSecurity’sCybersecurityandInfrastructureSecurityAgency,keyareasoffocusfortheTMFincludemodernizinghigh-prioritysystems,cybersecurity,public-facingdigitalsystems,andcross-governmentservices.CongressoriginallyauthorizedtheTMFforupto$250millionforFYs2018and2019,butthefundonlyreceived$175millionoveritsfirstthreeyears(2018–2020).Itdidreceiveasizeable$1billioncashinjectionfromtheARPin2021,butthatwasinresponsetoCOVID-19andwasfarlessthanthe$9billiontheBidenadministrationbelievednecessarytoachievelarge-scaleITmodernizationacrossthefederalgovernment.
35
TheBidenadministrationalsoaskedfor$500millionfortheTMFintheFY2022budgetrequest,butthelatestomnibusspendingbillprovidednoadditionalmoneyforthefund.
36
TheTMFboardemploysatwo-stepprocesstoevaluateandapproveproposedprojects,withGSAandOMBsettingthetermsofrepayment.Repaymenttypicallyaimstorecoupfullcostswithinfiveyears—amuchlongertimeframethanmostagency-levelWCFs.However,aspartoftheARP,theTMFbeganaccommodatingproposalsthatrequiregreaterrepaymentflexibilityiftheyalignwiththeboard’spriorities.Repaymentplansfallunderfullrepayment,partialrepaymentat25
INFORMATIONTECHNOLOGY&INNOVATIONFOUNDATION|MAY2022PAGE7
percent,50percent,or75percentofthefundinglevel,andminimalrepayment,whichisreservedfor“proposalsthattacklethemosturgentITcybersecurityandmodernizationproblemsfacingourgovernment,andwherecostsavingsarenoteasilyrealizedbytheproposingagency.”
37
Asonewouldexpect,theTMFisverypopularwithagencyITleaders,and,asaresultisnotviewedasafullyreliablefundingsourceformostfederalagencies.
38
RayleneYung,executivedirectoroftheTMF,statedinMarch2022thatthemoneytheTMFhadreceivedthusfarwasn’tnearlyenoughtomanage“thefloodofrequests”fromfederalagencies.
39
Asofthattime,theTMFhadreceivedover130proposalsworthabout$2.5billionfrommorethan40federalagencies.
40
WhiletheITWCFsandtheTMFofferoff-budgetfundingsourcesforagencies,mostagenciesarenotreadilyaccessingeitherofthem.Furthermore,themoneyavailablefromtheTMFistoolittletocovertheconsiderablepricetagsthatcomewithlarge-scaleITmodernizationefforts.
OtherITFundingChannels
GSAestablishedtheFCSFtodrive“innovationingovernmentthroughinteragencyprogramstoenhancethefederalgovernment’sabilitytodobusinesselectronicallyandtodisseminateFederalgovernmentinformationtothepublic.”
41
TheFCSFreceivesyearlyappropriations,includingthesame$55millionasFY2021fromthelatestspendingbill.
42
GSAusesFCSFmoneyoninitiativesthatarepublicfacingorgreatlyimpactcitizenservicessuchas(asecure,singlesign-onserviceusedbythepublictoaccessgovernmentservicesacrossmultipleparticipatingagencies)andtheFedRAMP(astandardizedapproachtoassesscloudservicesforusebythefederalgovernment).
43
TheAcquisitionServicesFund(ASF)isa“full-cost-recovery”revolvingfundthatdoesnotreceiveannualappropriationsfromCongressbutratherrecoverscostsbychargingfeestofederalagenciesfortheservicesandcommoditiesitprovides.TheASFincludestheacquisitionofITsolutionsaswellasmotorvehicles,supplies,andavarietyofothergoodsandservicesforfederalagencies.
44
InFY2020,theASFcontainedover$20billionwithmost(68percent)oftherevenuegeneratedfromtheDepartmentofDefense.
45
BoththeASFandFCSFfundpartoftheactivitiesofTechnologyTransformationServices(TTS),whichisGSA’sdepartmentthat“existstodesignanddeliveradigitalgovernmentwithandfortheAmericanpeople”andincludessalaryandstaffexpensesfor18F,GSA’steamoftechnologiststhathelpotheragencieswithtechnicalfixesandITdevelopment.
46
Similarly,theInformationTechnologyOversightandReform(ITOR)fund—anaccountofapproximately$240millionmanagedbyOMBtoinvestinITmonitoringactivities—helpsfundstaffingfortheU.S.DigitalService,thefederalgovernment’srotatingtacticaltechteamthatsupportsITmodernizationefforts.
47
WhileGSAandOMBuseFCSFandITORfundsforITmodernizationeffortsandstaffingthatfrequentlyimpactmultiplefederalagencies,themoneyitselfisnotavailableforusebymostfederalagenciesfortheirownITinitiatives.Similarly,boththeFCSFandASFareop
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