A study was conducted to develop tools for describing and evaluating external governance in the U.S. Department of Defense's (DoD's) multiorganizational system of education, training, and professional development. An exploratory conceptual framework and taxonomy for understanding external governance in the DoD context was developed, and the following criteria were used to assess the effectiveness of DoD's external governance: (1) evidence that system outcomes are being defined, measured, and evaluated relative to goals; (2) evidence that providers, intermediaries, and key stakeholders are communicating frequently and transparently; (3) evidence that providers and intermediaries are responsive to key stakeholder guidance; and (4) evidence that key stakeholders are being satisfied. The following recommendations were made to DoD: (1) advocate and facilitate system-level and demand-side governance on the part of key stakeholders within the system; (2) encourage all key stakeholders to undertake a structural analysis of governance as part of their own strategic planning function; (3) engage in system-specific development and pilot testing before performing an implementation audit of governance; (4) perform implementation audits on a case-by-case basis for major subsystems or key stakeholders that have salient problems with responsiveness and effectiveness; and (5) establish a center for development and retention of governance knowledge and evaluation capacity. (Contains 52 references.) (MN)