Military Base Realignments and Closures
Higher Costs and Lower Savings Projected for Implementing Two Key Supply-Related BRAC Recommendations Gao ID: GAO-08-315 March 5, 2008The 2005 Base Closure and Realignment Commission estimated that two supply-related recommendations now being implemented by the Defense Logistics Agency (DLA) would save the Department of Defense (DOD) about $4.8 billion over 20 years--about 13 percent of the 2005 base realignment and closure (BRAC) round's estimated long-term savings. These recommendations focus on business process reengineering by reconfiguring DLA's wholesale supply, storage, and distribution network and transferring procurement responsibility for depot-level reparables from the military services to DLA. This report is one in a series of reports on BRAC conducted under the Comptroller General's authority. It examines (1) the extent to which DLA's cost and savings estimates to implement these recommendations differ from those of the BRAC Commission and (2) DLA's progress and challenges in implementing the recommendations. GAO analyzed estimated cost and savings data and visited several of the military services' depots in its review.
Since the BRAC Commission issued its cost and savings estimates in 2005, DOD will spend more, save less, and take longer than expected to recoup up-front costs to implement two recommendations intended to improve DOD's logistics systems. Over the 2006-2011 BRAC time frame to implement these recommendations, GAO's analysis of DLA's data indicates that estimated net savings will be reduced by more than $1.8 billion compared to the BRAC Commission's estimate, with a net cost of about $222 million to DOD, because of increased estimated costs, decreased savings, and DLA's inclusion in the business plans of almost $243 million in expected savings that GAO believes should not be counted as BRAC savings. The $243 million in savings were to be achieved from inventory reduction initiatives that were not directly the result of BRAC actions and would have occurred regardless of BRAC. GAO's analysis further shows that the projected net annual recurring savings after 2011 have been reduced from nearly $360 million to almost $167 million, and that the savings over 20 years are expected to be $1.4 billion rather than $4.8 billion as estimated by the Commission. While some variances are to be expected, the magnitude of these variances is large and resulted from several factors, such as the use of inaccurate or outdated data, misinterpretation of terms, and changes in operational requirements that occurred during the decision-making process for formulating the recommendations. Because expected savings for the longer term are still large but subject to considerable variability, until net savings are tracked over time, decision makers will lack complete information to assess the financial performance of these recommendations. Although DLA has partially completed methodologies to accomplish this, they have yet to be implemented. While DLA has focused primarily on planning to date, it has identified several challenges as implementation proceeds that, if not properly addressed, may adversely impact the services' depot-level operations and impair readiness. One challenge raised by the services involves DLA's ability to continue the timely provision of supplies to industrial customers as it assumes management of supply operations. If repair parts are not available when needed, the services are concerned that mission readiness would be degraded. Another challenge concerns the identification of differences among the services' information technology systems and development and funding of solutions to bridge DLA's system with the services' systems. Resolving human capital issues is an additional challenge. Further, maintaining continuity of funding to match planned implementation milestones is a challenge that, if not addressed, could further delay implementation of planned BRAC actions. DLA has taken several actions to address these challenges, such as working closely with the services to resolve issues, but it is too soon to determine how effective these actions will be. Because of potential disruptions to the services' industrial operations, collaboration and monitoring of the execution of BRAC actions as implementation proceeds are essential to mitigate potential adverse effects to the services and readiness.
RecommendationsOur recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
Director: Team: Phone:GAO-08-315, Military Base Realignments and Closures: Higher Costs and Lower Savings Projected for Implementing Two Key Supply-Related BRAC Recommendations
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Report to Congressional Committees:
United States Government Accountability Office:
GAO:
March 2008:
Military Base Realignments And Closures:
Higher Costs and Lower Savings Projected for Implementing Two Key
Supply-Related BRAC Recommendations:
GAO-08-315:
GAO Highlights:
Highlights of GAO-08-315, a report to congressional committees.
Why GAO Did This Study:
The 2005 Base Closure and Realignment Commission estimated that two
supply-related recommendations now being implemented by the Defense
Logistics Agency (DLA) would save the Department of Defense (DOD) about
$4.8 billion over 20 years”about 13 percent of the 2005 base
realignment and closure (BRAC) round‘s estimated long-term savings.
These recommendations focus on business process reengineering by
reconfiguring DLA‘s wholesale supply, storage, and distribution network
and transferring procurement responsibility for depot-level reparables
from the military services to DLA. This report is one in a series of
reports on BRAC conducted under the Comptroller General‘s authority. It
examines (1) the extent to which DLA‘s cost and savings estimates to
implement these recommendations differ from those of the BRAC
Commission and (2) DLA‘s progress and challenges in implementing the
recommendations. GAO analyzed estimated cost and savings data and
visited several of the military services‘ depots in its review.
What GAO Found:
Since the BRAC Commission issued its cost and savings estimates in
2005, DOD will spend more, save less, and take longer than expected to
recoup up-front costs to implement two recommendations intended to
improve DOD‘s logistics systems. Over the 2006–2011 BRAC time frame to
implement these recommendations, GAO‘s analysis of DLA‘s data indicates
that estimated net savings will be reduced by more than $1.8 billion
compared to the BRAC Commission‘s estimate, with a net cost of about
$222 million to DOD, because of increased estimated costs, decreased
savings, and DLA‘s inclusion in the business plans of almost $243
million in expected savings that GAO believes should not be counted as
BRAC savings. The $243 million in savings were to be achieved from
inventory reduction initiatives that were not directly the result of
BRAC actions and would have occurred regardless of BRAC. GAO‘s analysis
further shows that the projected net annual recurring savings after
2011 have been reduced from nearly $360 million to almost $167 million,
and that the savings over 20 years are expected to be $1.4 billion
rather than $4.8 billion as estimated by the Commission. While some
variances are to be expected, the magnitude of these variances is large
and resulted from several factors, such as the use of inaccurate or
outdated data, misinterpretation of terms, and changes in operational
requirements that occurred during the decision-making process for
formulating the recommendations. Because expected savings for the
longer term are still large but subject to considerable variability,
until net savings are tracked over time, decision makers will lack
complete information to assess the financial performance of these
recommendations. Although DLA has partially completed methodologies to
accomplish this, they have yet to be implemented.
While DLA has focused primarily on planning to date, it has identified
several challenges as implementation proceeds that, if not properly
addressed, may adversely impact the services‘ depot-level operations
and impair readiness. One challenge raised by the services involves
DLA‘s ability to continue the timely provision of supplies to
industrial customers as it assumes management of supply operations. If
repair parts are not available when needed, the services are concerned
that mission readiness would be degraded. Another challenge concerns
the identification of differences among the services‘ information
technology systems and development and funding of solutions to bridge
DLA‘s system with the services‘ systems. Resolving human capital issues
is an additional challenge. Further, maintaining continuity of funding
to match planned implementation milestones is a challenge that, if not
addressed, could further delay implementation of planned BRAC actions.
DLA has taken several actions to address these challenges, such as
working closely with the services to resolve issues, but it is too soon
to determine how effective these actions will be. Because of potential
disruptions to the services‘ industrial operations, collaboration and
monitoring of the execution of BRAC actions as implementation proceeds
are essential to mitigate potential adverse effects to the services and
readiness.
What GAO Recommends:
GAO recommends that DOD take actions to improve accountability and
accuracy of BRAC costs and savings and promote successful
implementation of these BRAC recommendations. DOD concurred with two
recommendations, but disagreed with a third to exclude from DLA‘s
business plans all expected savings that are not the direct result of
BRAC actions.
To view the full product, including the scope and methodology, click on
[hyperlink, http://www.GAO-08-315]. For more information, contact Brian
J. Lepore at (202) 512-4523 or leporeb@gao.gov.
[End of section]
Contents:
Letter:
Results in Brief:
Background:
Cost Estimates Are Higher and Savings Estimates Are Lower than BRAC
Commission Estimates for Implementing the Recommendations:
DLA Has Made Progress in Planning for the Implementation of the 2005
BRAC Recommendations but Faces Several Challenges that It Is Taking
Actions to Address:
Conclusions:
Recommendations for Executive Action:
Agency Comments and Our Evaluation:
Appendix I: Text of the BRAC Commission's Supply, Storage, and
Distribution Management Reconfiguration:
Appendix II: Text of the BRAC Commission's Depot-Level Reparable
Procurement Management Consolidation Recommendation:
Appendix III: Scope and Methodology:
Appendix IV: Comments from the Department of Defense:
Appendix V: GAO Contact and Staff Acknowledgments:
Related GAO Products:
Tables:
Table 1: Comparison of Cost and Savings Estimates for the SS&D and DLR
Recommendations as of September 2007:
Table 2: Comparison of DLA's Cost Estimates to BRAC Commission Cost
Estimates for Fiscal Years 2006-2011 for the SS&D Recommendation as of
September 2007:
Table 3: Comparison of DLA's Savings Estimates to the BRAC Commission's
Estimates for the SS&D Recommendation for Fiscal Years 2006-2011 as of
September 2007:
Table 4: Comparison of BRAC Commission's Long-Term Savings Estimates to
GAO's Recalculated Estimates for the SS&D Recommendation as of
September 2007:
Table 5: Comparison of DLA's Cost Estimates to BRAC Commission Cost
Estimates for Fiscal Years 2006-2011 for the DLR Recommendation as of
September 2007:
Table 6: Total Costs and Savings for each Element of the DLR
Recommendation for Fiscal Years 2006-2011 as of September 2007:
Table 7: Comparison of DLA's Savings Estimates to BRAC Commission
Savings Estimates for Fiscal Years 2006-2011 for the DLR Recommendation
as of September 2007:
Table 8: Comparison of BRAC Commission's Long-Term Savings Estimates to
GAO's Recalculated Estimates for the DLR Recommendation as of September
2007:
Table 9: Scheduled Start and End Dates of Physical Implementation
Actions for the DLA SS&D and DLR Recommendations:
Figures:
Figure 1: DLA's Planned Reconfiguration of the Supply, Storage, and
Distribution Depot Network:
Figure 2: Command Relationship in Governance Structure:
Abbreviations:
BRAC: base realignment and closure:
DLA: Defense Logistics Agency:
DLR: depot-level reparable:
DOD: Department of Defense:
SS&D: supply, storage, and distribution:
[End of section]
United States Government Accountability Office:
Washington, DC 20548:
March 5, 2008:
Congressional Committees:
In 1997, we identified the Department of Defense's (DOD) management of
its support infrastructure as a high-risk area because infrastructure
costs have affected the department's ability to devote funds to other
more critical programs and needs. As part of its efforts to reduce
excess infrastructure and costs, DOD has undergone four rounds of base
realignment and closures (BRAC) since 1988 and is currently in the
process of implementing its fifth round--the 2005 BRAC round. This
latest round is the biggest, most complex, and costliest BRAC round
ever, with up-front costs to implement the recommendations now expected
to exceed $31 billion--an unprecedented amount, given that DOD has
spent about $24 billion to date to implement the four previous BRAC
rounds combined. While DOD expects this investment to provide an
opportunity for savings over the long term, DOD also viewed this round
as a unique opportunity to support defense transformation by reshaping
its infrastructure to provide improved support of its defense strategy.
Consequently, several of the recommendations from the 2005 round
focused on complex business process reengineering efforts, which is
historically atypical for a BRAC round.[Footnote 1]
Two business process reengineering recommendations from the 2005 BRAC
round are expected to have a major impact on the Defense Logistics
Agency (DLA) and the military services. One recommendation, concerning
reconfiguration of DLA's supply, storage, and distribution operations
(SS&D), is targeted primarily at reconfiguring DLA's distribution depot
network to save money and enhance the effectiveness of logistics
support to operational forces. The complete text of this recommendation
is reprinted in appendix I. The second recommendation, primarily
concerning procurement of depot-level reparables (DLR), is targeted at
moving the management of essentially all remaining consumable
items[Footnote 2] and the procurement of depot-level reparables and
related functions from the military services to DLA. The complete text
of this recommendation is reprinted in appendix II. These two
recommendations are among the largest in terms of savings, as projected
by the BRAC Commission, for the 182 recommendations for the 2005 BRAC
round. When combined, the BRAC Commission estimated that these two
recommendations would save about $360 million annually after the 6-year
implementation period ending in fiscal year 2011, and about $4.8
billion over the 20-year period ending in 2025.[Footnote 3]
In September 2005, DLA was designated as the business manager for
implementing these two recommendations within the department, and thus
is responsible for developing business plans and coordinating
implementation efforts with each of the military services. The business
plans are intended to provide, among other things, details on actions
and time frames, along with estimated costs and savings associated with
implementing the recommendations. At the time of our review, a business
plan for the SS&D recommendation had not yet been approved by the
Office of the Secretary of Defense, with the latest draft submitted for
approval in September 2007. The business plan for the DLR
recommendation was approved in October 2006, and an updated plan was
resubmitted in September 2007 and is awaiting approval. As the business
manager, DLA is required to update these business plans semiannually
and submit them to the Office of the Secretary of Defense for review.
In our July 2005 report on the 2005 BRAC round decision-making process
and DOD's proposed recommendations, we stated that there was
uncertainty regarding the magnitude of savings likely to be realized in
some aspects of these DLA-managed BRAC recommendations, given
assumptions regarding expected efficiency gains from business process
reengineering efforts that had not been validated.[Footnote 4] We
attributed the uncertainty to estimates that were based on historical
documentation and assumptions that were subject to only limited testing
and had not been validated. We reported that this could lead to a false
sense of savings and lead to premature reductions in affected budgets
in advance of actual savings being fully realized, as has sometimes
occurred in past efforts to achieve savings through business process
reengineering efforts.
This review is one in a series of reviews that we have undertaken on
the implementation of BRAC 2005 round actions. Because of the magnitude
of the savings expected from implementing these DLA-managed
recommendations and broad congressional interest in BRAC, we prepared
this report under the Comptroller General's authority to conduct
evaluations on his own initiative to determine (1) the extent to which
cost and savings estimates in DLA's plans to implement these two
recommendations differ from those of the BRAC Commission, and (2) DLA's
progress and the challenges it faces in implementing the
recommendations. We are reporting the results to you in order to
facilitate your oversight of DOD's implementation of the BRAC 2005
recommendations.
To determine the extent to which DLA's cost and savings estimates
varied from those of the BRAC Commission, we reviewed and compared
DLA's estimates--as presented in its September 28, 2007, draft SS&D
business plan and its September 28, 2007, updated DLR business plan--
with those of the BRAC Commission, and discussed the rationale for
variances with DLA officials. The September 2007 business plans were
the most current plans available at the time of our review and provide
more current estimates and associated variances with BRAC Commission
estimates than those provided in our December 2007 report on overall
BRAC costs and savings.[Footnote 5] In that report we used fiscal year
2008 DOD budget data for comparative purposes. To determine DLA's
progress in implementing these two recommendations and the challenges
associated with their implementation, we analyzed supporting data and
interviewed officials at various levels within DOD, DLA headquarters
and selected supply distribution depots, various military services'
headquarters offices, and industrial customers aligned with DLA
distribution depots. We also discussed with DLA officials various
implementation challenges that have emerged as implementation planning
has progressed. We further relied on our related work and resulting
report issued in October 2007 regarding actions associated with the
implementation of the SS&D recommendation.[Footnote 6] While we
determined that the data presented in DLA's planning documents were
sufficiently reliable for the purposes of this report, it should be
noted that the business plans are considered "living" documents and the
data presented therein represent a point in time as plans are subject
to change as implementation proceeds. We conducted this performance
audit from January 2006 through December 2007 in accordance with
generally accepted government auditing standards. Those standards
require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings and
conclusions based on our audit objectives. We believe that the evidence
obtained provides a reasonable basis for our findings and conclusions
based on our audit objectives. More detailed information on our scope
and methodology appears in appendix III.
Results in Brief:
Since the BRAC Commission issued its BRAC costs and savings estimates
in 2005, DOD will spend more, save less, and take longer than expected
to recoup up-front costs for the SS&D and DLR recommendations. Over the
2006-2011 implementation period, our analysis of DLA's data indicates
that estimated net savings will be reduced by more than $1.8 billion
compared to the BRAC Commission's estimate, with a net cost of about
$222 million to DOD, because of increased estimated costs, decreased
savings, and DLA's inclusion in the business plans of almost $243
million in expected savings that we believe should not be counted as
BRAC savings. The $243 million in savings were to be achieved from
implementing inventory reduction initiatives that were not directly the
result of BRAC actions and would have occurred regardless of BRAC.
While DLA asserts that these particular savings were "enabled" by the
BRAC process, we believe that including savings unrelated to specific
BRAC actions distorts and effectively overstates projected savings from
implementing the BRAC recommendations.[Footnote 7] Our analysis further
shows that the projected net annual recurring savings for both
recommendations beginning in fiscal year 2012 have been reduced from
$360 million to approximately $167 million, and the expected savings
over a 20-year period ending in fiscal year 2025 have been reduced from
almost $4.8 billion to about $1.4 billion.[Footnote 8] While some
variances with initial estimates are to be expected as plans are
refined, the magnitude of these variances is large and has resulted
from a number of factors, such as the use of inaccurate or outdated
data, misinterpretation of terms and specific data, and changes in
operational requirements that occurred during the decision-making
process for formulating the recommendations.[Footnote 9] As
implementation continues and plans are further refined, we believe that
estimates are likely to continue to change because estimates of
information technology costs are still being developed and key savings
assumptions have to be validated during implementation. Thus, the
magnitude of the potential savings for these recommendations will
remain uncertain and may be subject to considerable variability as
implementation of the recommendations progresses. As a result, we
believe it is important to update and track these savings over time in
order to judge the financial performance of the recommendations and
make adjustments as necessary to achieve BRAC savings goals. While DLA
has recognized the need to periodically update savings to reflect
actual performance over time and had developed, as of October 2007, a
methodology to do so for the DLR recommendation, no such methodology
existed for the SS&D recommendation. Until DLA develops and fully
implements these methodologies for monitoring and periodically
reporting actual savings as implementation progresses, the
uncertainties associated with the magnitude of the savings may preclude
Congress and DOD decision makers from having the most complete
information possible as they assess the relative financial performance
of these BRAC recommendations.
While DLA's progress to date has focused primarily on planning efforts
to implement these two recommendations, DLA faces several challenges as
implementation proceeds and is taking actions to address them. DLA has
taken several actions to implement the recommendations, primarily
focusing on organizational and planning activities such as creating an
office to oversee implementation actions and formulating implementation-
related guidance and plans. DLA, in working with the services, faces
several challenges in implementing these two recommendations that, if
not properly addressed, could have adverse impacts on DOD's supply
mission, which in turn could impair warfighter readiness. For example,
one challenge repeatedly expressed by service officials involves DLA's
ability to continue the timely provision of supplies to service
industrial customers. If repair parts are not available when needed,
the services are concerned that depot maintenance operations would be
disrupted and mission readiness would be degraded. DLA faces additional
challenges related to information technology and human capital. DLA
also faced a challenge in the early planning stages in obtaining timely
funding commitments from the services for their respective portions of
implementation costs, and the potential exists for this to recur as
budgets are adjusted and further refined as implementation proceeds.
While our analysis of fiscal year 2008 BRAC budget documentation
indicates that this funding challenge may have been somewhat mitigated,
unless close attention is paid to subsequent budgets throughout the
implementation period ending in September 2011, successful
implementation of these two recommendations may be jeopardized. DLA has
taken several initial actions to address these challenges, work through
problems and concerns, and identify potential solutions and mitigating
actions where possible. Although the effectiveness of these actions
will not be fully known until implementation has progressed further and
problems arise and are addressed, service officials we spoke with
expressed satisfaction with the actions that have been taken to date.
Nonetheless, because of potential disruptions to the services'
industrial operations, continued collaboration and monitoring of the
execution of BRAC actions as implementation proceeds is essential to
make adjustments as necessary to mitigate potential adverse effects to
the services and service readiness.
We are making several recommendations to improve the accountability and
accuracy of costs and savings and promote the successful implementation
of the SS&D and DLR recommendations. To improve the accuracy of the
costs and savings attributable to the BRAC recommendations, we are
recommending that DLA include in its business plans only those costs
and savings that directly result from actions taken to implement the
BRAC recommendations. In addition, to provide greater accountability
and visibility over the financial performance of these two DLA-managed
BRAC recommendations, we are recommending that, as business plans are
refined throughout the implementation period, DLA fully implement
methodologies for periodically monitoring and updating costs and
savings as implementation progresses for each recommendation.
Furthermore, to help ensure that the execution of implementation plans
remains on track and that these particular BRAC recommendations are
successfully implemented, we are recommending that all respective
service and DLA budget submissions for the remainder of the
implementation period extending through fiscal year 2011 reflect all
necessary funding to meet implementation milestones.
In commenting on a draft of this report, DOD concurred with our
recommendations on implementing methodologies for periodically
monitoring and updating net savings for the BRAC SS&D and DLR
recommendations throughout the implementation period and ensuring that
necessary funding to meet implementation milestones is reflected in all
respective service and DLA budget submissions for the remainder of the
implementation period ending in fiscal year 2011. DOD did not concur
with our recommendation to revise DLA's business plans to exclude all
expected savings that are not the direct result of BRAC actions. DOD
stated that while $243 million of its potential savings were not
directly the result of BRAC actions, they were "enabled" by BRAC
actions and should be attributable to the recommendation. We disagree
and continue to believe that these expected savings resulting from the
services' non-BRAC initiatives are not the direct result of BRAC
actions and would have occurred regardless of BRAC. As a result, they
should not be counted as BRAC savings and should be excluded from DLA's
business plans for these BRAC recommendations. DOD's written comments
are reprinted in appendix IV. DOD also provided technical comments,
which we have incorporated into this report as appropriate.
Background:
Since 1988, DOD has completed four base realignment and closure rounds
and is currently in the process of implementing its fifth round--the
2005 BRAC round.[Footnote 10] As a result of the earlier BRAC rounds,
DOD reported that it had reduced its domestic infrastructure by about
20 percent in terms of plant replacement value and saved billions of
dollars on an annual recurring basis for application to higher priority
defense needs. Despite these infrastructure reductions, DOD recognized
the need for additional closures and realignments following the 1995
closure round and made repeated efforts to gain congressional
authorization for an additional closure round. Congress authorized a
BRAC round for 2005 with the passage of the National Defense
Authorization Act for Fiscal Year 2002.[Footnote 11] On May 13, 2005,
the Secretary of Defense made public his recommendations for the 2005
BRAC round and projected nearly $50 billion in savings over a 20-year
period. These recommendations were forwarded to the Defense Base
Closure and Realignment Commission, commonly referred to as the BRAC
Commission, which was established by law as an independent entity to
evaluate DOD's recommendations.[Footnote 12] The Commission
subsequently presented its findings and recommendations to the
President on September 8, 2005. The President approved the Commission's
recommendations in their entirety and forwarded them to Congress on
September 15, 2005. The recommendations became effective on November 9,
2005, and DOD has until September 15, 2011, to complete the
implementation of all recommendations.
DOD has recognized that the implementation of recommendations that
focus on business process reengineering actions involving multiple
defense components from the 2005 BRAC round would likely be more
difficult than those recommendations targeted to a single service or
component. Because of the interest in pursuing transformation and
fostering more jointness across the various defense components, DOD
formed seven Joint Cross-Service Groups early in the BRAC decision-
making process to formulate potential recommendations to achieve these
goals. The Supply and Storage Joint Cross-Service Group pursued
logistics economies to reduce the number of sites and related excess
capacity across various defense components and ultimately developed
three recommendations that were included in DOD's submission of
proposed recommendations to the BRAC Commission. The Commission
accepted, in their entirety, two of the recommendations--the
elimination of DLA's supply, storage, and distribution functions for
certain designated commodities such as tires, with reliance on the
private sector for these functions and the realignment of DLA's supply,
storage, and distribution system into four geographical regions--and
made minor changes to the other recommendation--the transfer of the
procurement of depot-level reparables from the military services to
DLA. The latter two recommendations are the focus of this report
because, when combined, the Commission expected these particular
recommendations to generate about $360 million annually in estimated
savings beginning in 2012 and about $4.8 billion over 20 years
extending through fiscal year 2025. The latter figure represents over
13 percent of the nearly $36 billion BRAC Commission 20-year savings
estimate for implementing all 2005 BRAC round recommendations.
The supply, storage, and distribution recommendation is intended to
transform existing logistics processes by reconfiguring the
department's wholesale storage and distribution infrastructure across
the continental United States into four hub-and-spoke geographical
regions with the intent of improving support to the military forces.
Each region is to have one hub, known as a strategic distribution
platform, and multiple spokes, known as forward distribution points, to
provide supplies to designated customers. Distribution depots, no
longer needed for regional supply, will be realigned as forward
distribution points and will provide dedicated receiving, storing, and
issuing functions solely in support of on-base industrial customers
such as maintenance depots, shipyards, and air logistics centers. Under
this recommendation, these forward locations are to consolidate all
supply and storage functions supporting industrial activities, to
include those internal to the military services' depots and shipyards,
and those at any intermediate levels that may exist. Figure 1
identifies the regions and specific locations of DLA's planned
reconfigured supply, storage, and distribution depot network. We have
recently reported on a portion of this recommendation, specifically
various issues associated with the transfer of supply, storage, and
distribution functions at specified military services' depot
maintenance locations that are collocated with a DLA distribution
depot.[Footnote 13]
Figure 1: DLA's Planned Reconfiguration of the Supply, Storage, and
Distribution Depot Network:
[See PDF for image]
This figure is a map of the Continental United States depicting
locations of DLA's Planned Reconfiguration of the Supply, Storage, and
Distribution Depot Network. The following locations are depicted:
Strategic Distribution Platforms (SDP):
Susquehanna (PA) SDP;
ALC Warner Robbins(GA) AFB/SDP;
ALC Tinker (OK) AFB/SDP;
San Joaquin (CA) SDP.
Forward Distribution Points (FDP):
Tobyhanna (PA) AD;
DSC Richmond (VA);
NAVSTA Norfolk (VA);
MCAS Cherry Point (NC);
Anniston AD (AL);
MCLB Albany (GA);
NAVSTA Jacksonville (FL);
Corpus Christi AD (TX);
NAVSTA San Diego (CA);
MCLB Barstow (CA);
ALC Hill AFB (UT);
NAVSTA Bremerton (WA).
Defense Distribution Depot:
Red River AD (TX).
AD: Army Depot.
MCAS: Marine Corps Air Station.
AFB: Air Force Base.
MCLB: Marine Corps Logistics Base.
NAVSTA: Naval Station.
ALC: Air Logistics Center.
DSC: Defense Supply Center.
Source: DLA.
[End of figure]
As noted in figure 1, DLA's distribution depot located at the Red River
Army Depot in Texas was neither designated as a strategic distribution
platform nor a forward distribution point. The BRAC Commission made no
mention of the disposition of this particular location in its September
2005 report and thus this depot is neither subject to this BRAC 2005
recommendation nor any others. Initially, because the Army had
recommended closing the Red River Army Depot installation, the
distribution depot at this location was also slated for closure.
However, with the Commission's decision to remove the Red River Army
installation from the closure list and instead realign certain
activities at the installation, the distribution depot was slated to
remain. Thus, DLA retains a traditional defense distribution depot
located in close proximity to the planned Oklahoma City strategic
distribution platform.
The DLR recommendation is intended to realign procurement and related
support functions at 13 locations by making these functions the
responsibility of DLA. The basis for the recommendation was the
expectation of achieving savings over time by having a single agency,
DLA, procure depot-level reparables for all of the services. Most of
the projected savings result from assumptions about using long-term
contracts, such as performance-based agreements or performance-based
logistics, instead of smaller contracts each time a purchase is
required.[Footnote 14] The DLR recommendation, as approved by the BRAC
Commission, has three main elements: consolidation of depot-level
reparable procurement across DOD within DLA, the completion of the
transfer of remaining consumable item management to DLA, and the
relocation of integrated material management functions to other
locations.
To implement BRAC recommendations, DOD typically must incur various up-
front investment costs during the 6-year implementation period in order
to achieve long-term savings associated with the recommended actions.
Such costs generally include, for example, one-time costs for actions
such as military construction and personnel and equipment movement, as
well as recurring costs for increased operation and maintenance of
facilities and information systems. While savings from this investment
may begin to accrue over the implementation period, additional savings
typically occur annually on a longer-term basis beyond the
implementation period ending in fiscal year 2011. One-time savings may
include for example, reduced costs associated with inventory reduction
or elimination of planned military construction. Recurring savings may
include for example, reduced sustainment costs associated with
maintaining less warehouse space. Net annual recurring savings after
the implementation period are calculated by subtracting the annual
recurring costs from the annual recurring savings. Expected 20-year
savings, also referred to as 20-year net present value savings, take
into account all one-time and recurring costs and savings incurred over
the fiscal year 2006 through 2025 time period.[Footnote 15]
To calculate estimates for these different types of costs and savings
for the 2005 BRAC round, DOD and the BRAC Commission used the Cost of
Base Realignment Actions model, commonly referred to as COBRA, which
has been used in all previous BRAC rounds to provide a standard
quantitative approach to compare estimated costs and savings across
various proposed recommendations. The model relies to a large extent on
standard factors and averages but is not intended to and consequently
does not present budget quality estimates. As a result, estimates
generated by the model cannot be assumed to represent the actual costs
that Congress will need to fund through appropriations to complete
implementation of BRAC recommendations, nor can savings be assumed to
fully reflect the savings to be achieved after implementation. We have
examined this quantitative model in the past, as well as during our
review of the 2005 BRAC round, and, given the quality of the data and
assumptions used in the model, found it to be a generally reasonable
estimator for comparing potential costs and savings among alternative
closure and realignment scenarios with the caveat that the estimates do
not represent budget quality data. Nevertheless, in the absence of
budget quality data, the results of the model are what were used at the
time of BRAC decision making and were reported to Congress to justify
the expected costs and savings associated with the BRAC
recommendations. The results from the model are the only available data
that can be used to compare the original BRAC Commission estimates to
the more refined estimates in subsequent business plans and in budget
submissions to Congress.
Cost Estimates Are Higher and Savings Estimates Are Lower than BRAC
Commission Estimates for Implementing the Recommendations:
Based on our analysis of DLA's business plans, cost estimates are
higher and savings estimates are lower than the BRAC Commission
estimated for implementing both the SS&D and DLR recommendations, and
it will take longer than expected to recoup up-front costs for
implementing the recommendations. Although we calculated that total
long-term savings over 20 years may occur, our analysis of DLA's
business plans shows that there will instead be a net cost to DOD
rather than savings over the fiscal year 2006 through 2011
implementation period for these two recommendations. For both the SS&D
and DLR recommendations, the net savings over the implementation
period, the long-term net annual recurring savings for fiscal years
2012 through 2025, and the 20-year net present value of those savings
from fiscal year 2006 through 2025 are all likely to be less than the
BRAC Commission estimated. As implementation proceeds, costs are likely
to continue increasing and savings are likely to continue to change,
further changing the long-term savings to be realized.
Although Long-Term Savings Are Estimated to Occur, Net Savings Are
Estimated to Be Reduced by More than $1.8 Billion for Both
Recommendations over the Implementation Period:
Although long-term savings are expected to occur, our analysis of cost
and savings data in DLA's business plans shows that estimated net
savings will be reduced by more than $1.8 billion from the BRAC
Commission's estimated net savings to implement the SS&D and DLR
recommendations over the fiscal year 2006 through 2011 implementation
period. The $1.8 billion figure consists of a combination of a $328
million increase in expected costs--51 percent--and an almost $1.5
billion decrease in expected savings--67 percent. Our analysis of DLA's
data indicates that there will instead be a net cost of about $222
million to DOD over this period rather than a savings because the plans
included almost $243 million in expected savings that DLA believes were
enabled by BRAC actions and should be counted as BRAC savings. We do
not believe that these enabled savings should be counted as BRAC
savings because they are not the direct result of a BRAC action.
Section A of table 1 below shows the cost and savings estimates over
the fiscal year 2006 through 2011 implementation period by
recommendation. Section B of table 1 shows the net annual recurring
savings estimates over fiscal years 2012 through 2025 by
recommendation. Our analysis of these savings data presented in DLA's
business plans shows that the projected net annual recurring savings
are almost $167 million, rather than the $360 million estimated by the
BRAC Commission, a 54 percent decrease. Similarly, section C of table 1
shows the 20-year net present value of savings estimates over fiscal
years 2006 through 2025 by recommendation. Our analysis of these
savings shows the 20-year net present value of estimated savings for
this period is about $1.4 billion, rather than almost $4.8 billion as
estimated by the BRAC Commission, a 70 percent decrease. Based on our
analysis of the BRAC Commission estimates, DOD's up-front investments
for both recommendations would begin to pay back in fiscal year 2009.
Instead, due to the variances in costs and savings, DOD's payback
period[Footnote 16] will be prolonged to fiscal year 2012 for the SS&D
recommendation--3 years longer than expected--and fiscal year 2014 for
the DLR recommendation--5 years longer than expected.
Table 1: Comparison of Cost and Savings Estimates for the SS&D and DLR
Recommendations as of September 2007:
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: SS&D costs;
BRAC Commission estimate[A]: $426.3;
DLA business plan: $564.1;
GAO analysis[B]: $564.1;
Variance increase/(decrease)[C]: $137.8;
Percentage change: 32.
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: DLR costs;
BRAC Commission estimate[A]: $211.9;
DLA business plan: $401.7;
GAO analysis[B]: $401.7;
Variance increase/(decrease)[C]: $189.8;
Percentage change: 90.
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: Total costs (FY 2006-2011);
BRAC Commission estimate[A]: $638.2;
DLA business plan: $965.8;
GAO analysis[B]: $965.8;
Variance increase/(decrease)[C]: $327.6;
Percentage change: 51.
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: SS&D savings;
BRAC Commission estimate[A]: $1,605.9;
DLA business plan: $631.7;
GAO analysis[B]: $460.3;
Variance increase/(decrease)[C]: ($1,145.6);
Percentage change: (71).
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: DLR savings;
BRAC Commission estimate[A]: $624.5;
DLA business plan: $354.9;
GAO analysis[B]: $283.9;
Variance increase/(decrease)[C]: ($340.6);
Percentage change: (55).
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: Total savings (FY 2006-2011);
BRAC Commission estimate[A]: $2,230.4;
DLA business plan: $986.6;
GAO analysis[B]: $744.2;
Variance increase/(decrease)[C]: ($1,486.2);
Percentage change: (67).
Category: Section A: Comparison of cost and savings estimates for
implementation period--fiscal years 2006-2011; Then-year dollars in
millions: Net savings[D];
BRAC Commission estimate[A]: $1,592.2;
DLA business plan: $20.8;
GAO analysis[B]: ($221.6);
Variance increase/(decrease)[C]: ($1,813.8);
Percentage change: N/A[E].
Category: Section B: Comparison of net annual recurring savings
estimates--fiscal years 2012 - 2025; Fiscal year 2005 constant dollars
in millions: SS&D net annual recurring savings;
BRAC Commission estimate[A]: $203.2;
DLA business plan: $147.9;
GAO analysis[B]: $122.8;
Variance increase/(decrease)[C]: ($80.4);
Percentage change: (40).
Category: Section B: Comparison of net annual recurring savings
estimates--fiscal years 2012 - 2025; Fiscal year 2005 constant dollars
in millions: DLR net annual recurring savings;
BRAC Commission estimate[A]: $156.8;
DLA business plan: $53.4;
GAO analysis[B]: $44.0;
Variance increase/(decrease)[C]: ($112.8);
Percentage change: (72).
Category: Section B: Comparison of net annual recurring savings
estimates--fiscal years 2012 - 2025; Fiscal year 2005 constant dollars
in millions: Total net annual recurring savings (FY 2012-2025);
BRAC Commission estimate[A]: $360.0;
DLA business plan: $201.3;
GAO analysis[B]: $166.8;
Variance increase/(decrease)[C]: ($193.2);
Percentage change: (54).
Category: Section C: Comparison of 20-year net present value of savings
estimates--fiscal years 2006-2025; Fiscal year 2005 constant dollars in
millions: SS&D 20-year net present value savings;
BRAC Commission estimate[A]: $2,925.8;
DLA business plan: $1,487.7[F];
GAO analysis[B]: $1,096.4;
Variance increase/(decrease)[C]: ($1,829.4);
Percentage change: (63).
Category: Section C: Comparison of 20-year net present value of savings
estimates--fiscal years 2006-2025; Fiscal year 2005 constant dollars in
millions: DLR 20-year net present value savings;
BRAC Commission estimate[A]: $1,857.8;
DLA business plan: $486.9[F];
GAO analysis[B]: $332.3;
Variance increase/(decrease)[C]: ($1,525.5);
Percentage change: (82).
Category: Total 20-year net present value (FY 2006-2025);
BRAC Commission estimate[A]: $4,783.6;
DLA business plan: $1,974.6[F];
GAO analysis[B]: $1,428.7;
Variance increase/(decrease)[C]: ($3,354.9);
Percentage change: (70).
Source: GAO analysis of DLA-provided data and the BRAC Commission 2005
report.
[A] While the BRAC Commission reported its estimates in fiscal year
2005 constant dollars, DLA subsequently converted them to then-year
(current) dollars for the implementation period in its business plans.
[B] Excludes three inventory-related initiatives included in the draft
September 28, 2007, SS&D business plan and an inventory-related
initiative included in the draft September 28, 2007, DLR business plan
that are not directly the result of BRAC actions and that we believe
should not be counted as BRAC savings.
[C] Represents the variance between the GAO analysis and the BRAC
Commission estimate.
[D] Net savings are the net of subtracting total costs from total
savings. Our analysis indicates that a loss, rather than a net savings,
will occur over the implementation period.
[E] No percentage change is displayed because the change was from a
positive number to a negative number, which renders the percentage
change statistically meaningless.
[F] GAO estimate based on DLA draft September 28, 2007, SS&D business
plan data and DLA's updated September 28, 2007, DLR business plan data.
[End of table]
Although Long-Term Savings Are Estimated to Occur, Net Savings Are
Estimated to Be Reduced by about $1.3 Billion over the Implementation
Period for the SS&D Recommendation:
Although long-term savings are estimated to occur, when increased cost
and reduced savings estimates are considered, we estimate that the net
savings for implementation of the SS&D recommendation will be reduced
by about $1.3 billion compared to the BRAC Commission's net savings
estimate over the fiscal year 2006 to 2011 implementation period. DLA's
business plan estimates for one-time and recurring costs from fiscal
years 2006 through 2011 have increased by almost $138 million from
those of the BRAC Commission, due mainly to increases for operation and
maintenance and military construction costs. In addition, we estimate
that one-time and recurring savings for fiscal years 2006 through 2011
decreased by over $1.1 billion from the BRAC Commission estimates, due
mainly to a reduction in the expected decrease in the size of the
forward distribution points, fewer personnel reductions, and DLA's
inclusion of $172 million in expected savings resulting from inventory
reduction initiatives that are not directly the result of BRAC actions.
Although long-term savings are estimated to occur, based on the
increased costs and decreased savings projected in DLA's business plan
and the exclusion of unrelated BRAC savings from inventory reduction
initiatives, we calculated that the net annual recurring savings for
fiscal years 2012 through 2025 are likely to be about $80 million less
than the BRAC Commission estimated, and the 20-year savings from fiscal
years 2006 through 2025 are likely to be more than $1.8 billion less
than the BRAC Commission estimated.
Cost Estimates over Implementation Period Increased by $138 Million:
DLA's business plan shows that the total cost estimates for
implementing the SS&D recommendation had increased by almost $138
million over the 6-year implementation period compared to the BRAC
Commission's estimate. As shown in table 2, DLA estimates that it will
cost DOD about $564 million over this period, which is an increase of
approximately $138 million, or 32 percent, over the Commission's
estimate of about $426 million. DLA's one-time costs are now estimated
to be about $541 million, an increase of almost $333 million or 160
percent. However, estimates for recurring costs were eliminated from
the business plan because these costs will be reimbursed by the
military services.
Table 2: Comparison of DLA's Cost Estimates to BRAC Commission Cost
Estimates for Fiscal Years 2006-2011 for the SS&D Recommendation as of
September 2007 (Then-year dollars in millions):
Category: Total one-time costs;
BRAC Commission estimate[A]: $208.3;
DLA business plan: $540.8;
Variance increase/(decrease): $332.5;
Percentage change: 160.
Category: Costs funded outside of the account[B];
BRAC Commission estimate[A]: $0.0;
DLA business plan: $23.3;
Variance increase/(decrease): $23.3;
Percentage change: 100.
Category: Total recurring costs;
BRAC Commission estimate[A]: $218.0;
DLA business plan: $0.0;
Variance increase/(decrease): ($218.0);
Percentage change: (100).
Total costs:
BRAC Commission estimate[A]: $426.3;
DLA business plan: $564.1;
Variance increase/(decrease): $137.8;
Percentage change: 32.
Source: GAO analysis of DLA September 28, 2007, draft business plan and
the BRAC 2005 report.
[A] These figures are presented in then-year dollars. While the BRAC
Commission reported its estimates in fiscal year 2005 constant dollars,
DLA subsequently converted them to then-year (current) dollars in its
business plans.
[B] According to DLA officials, costs funded outside of the account
refers to operation and maintenance costs for information technology
expenses in the Army that will be paid for out of the Army's
appropriated funds.
[End of table]
DLA's business plan describes a variety of factors that contributed to
the increase in one-time costs. Some of the major increases include an
additional $49 million to re-warehouse stock at the strategic
distribution platforms and consolidate storage at the forward
distribution points, almost $47 million to develop software systems at
the sites collocated with service industrial facilities, $36 million to
modify existing A-76 contracts at some locations,[Footnote 17] $27.5
million for warehouse storage aids, and $20.7 million to pay travel
expenses of the DLA implementation teams. Our analysis of the business
plan and discussions with agency officials indicate that most of these
increases are a result of changes occurring since the data were
collected during the up-front BRAC decision-making process.
DLA's business plan also shows that nearly $97 million of the increase
in one-time costs was attributed to increased military construction
costs at three locations. First, $55 million is needed to build more
storage space at the defense distribution depot located at Susquehanna,
Pennsylvania due to changes in operational requirements over time.
While this depot had considerable excess capacity in 2003 when the BRAC
Commission data were collected, by 2006 the situation had changed and
Susquehanna no longer had the capacity to store the material that the
BRAC recommendation envisioned. Second, $22 million is needed to
satisfy requirements for a containerization, consolidation, and
palletization facility at DLA's Oklahoma City, Oklahoma depot located
at Tinker Air Force Base so that this facility can function as a
strategic distribution platform. This facility was designated as a
strategic distribution platform after the BRAC Commission decided not
to close the Red River Army depot. However, once Oklahoma City was
designated instead as a strategic distribution platform, the cost for
this facility was not included in the recommendation. Third, $20
million is needed because of an input error that resulted in inaccurate
data being used during the BRAC process to calculate the square footage
requirements of the containerization, consolidation, and palletization
facility scheduled to be built at the Warner Robins strategic
distribution platform. The square footage was entered into the BRAC
database as 20,000 square feet when it should have been 200,000 square
feet, thus increasing the cost.
Savings Estimates over Implementation Period Decreased by More than
$1.1 Billion:
Our analysis of DLA's estimates also shows that one-time and recurring
savings for implementing the SS&D recommendation have decreased by more
than $1.1 billion from the BRAC Commission estimates over the
implementation period. As shown in table 3, our analysis of the
business plan's one-time savings estimates shows a decrease of almost
$670 million, a 95 percent decrease. As a result, we estimate that one-
time savings for this period will be about $34 million, rather than the
almost $704 million estimated by the BRAC Commission. Similarly, our
analysis of the business plan shows a decrease in recurring savings of
about $476 million over this same period, a 53 percent decrease. As a
result, we estimate that total recurring savings will be over $426
million, rather than about $902 million as estimated by the Commission.
Table 3: Comparison of DLA's Savings Estimates to the BRAC Commission's
Estimates for the SS&D Recommendation for Fiscal Years 2006-2011 as of
September 2007 (Then-year dollars in millions):
Category: Total one-time savings;
BRAC Commission estimate[A]: $703.8;
DLA business plan: $45.6;
GAO analysis[B]: $33.9;
Variance increase/(decrease)[C]: ($669.9);
Percentage change: (95).
Category: Total recurring savings;
BRAC Commission estimate[A]: $902.1;
DLA business plan: $586.1;
GAO analysis[B]: $426.3;
Variance increase/(decrease)[C]: ($475.8);
Percentage change: (53).
Total savings:
BRAC Commission estimate[A]: $1,605.9;
DLA business plan: $631.7;
GAO analysis[B]: $460.3;
Variance increase/(decrease)[C]: ($1,145.6);
Percentage change: (71).
Source: GAO analysis of DLA-provided data and the BRAC Commission 2005
report.
Note: Amounts may not total due to rounding.
[A] These figures are presented in then-year dollars. While the BRAC
Commission reported its estimates in fiscal year 2005 constant dollars,
DLA subsequently converted them to then-year (current) dollars in its
business plans.
[B] Excludes $172 million in expected savings DLA included in its draft
September 28, 2007, SS&D business plan that resulted from inventory
reduction initiatives that are not directly the result of BRAC actions
and that we believe should not be counted as BRAC savings.
[C] Represents the variance between the GAO analysis and the BRAC
Commission estimate.
[End of table]
The $670 million decrease in one-time savings is attributed primarily
to a misinterpretation that occurred during the BRAC decision-making
process for formulating recommendations in defining duplicate inventory
and DLA's inclusion of potential savings resulting from inventory
reduction initiatives that are not the direct result of BRAC actions.
Specifically, as we previously reported, the BRAC Commission's estimate
of almost $704 million in one-time savings was based on the belief that
eliminating duplicate inventory--inventory stored by both the services
and the DLA depots--would produce both one-time and recurring
savings.[Footnote 18] However, after further review of the potentially
duplicative items, DLA and the services found that data generated by
DOD during the BRAC decision-making process were flawed. For example,
war reserve materiel, materiel held for other customers, and materiel
stored at the Red River Army Depot were incorrectly included in the
BRAC estimating model. These items were not actually duplicative and
thus could not be eliminated. As a result, the savings associated with
these items will not occur. After DLA's business plan was revised to
correct these misinterpretations, the BRAC Commission's estimated $704
million in one-time savings for inventory reduction was eliminated, and
was subsequently replaced with almost $46 million in one-time savings,
some of which are due to inventory reduction initiatives we believe are
unrelated to BRAC, as explained later in this subsection.
The $476 million decrease in recurring savings is attributed primarily
to a variety of factors, such as the reduction of savings associated
with duplicative inventory, an increase in the size of the forward
distribution points, fewer personnel reductions, and the inclusion of
savings related to inventory reduction initiatives we believe are
unrelated to BRAC. The recurring savings associated with the duplicate
inventory were reduced by about $305 million because the cost to hold
inventory is directly related to the quantities of inventory stored. In
addition, recurring savings estimates were decreased by about $84
million because the size of the forward distribution points has
increased from the original BRAC estimates. Our review of supporting
documentation showed that DLA reevaluated the size of the forward
distribution points after it determined that the initial request for
data regarding storage of hazardous, hard-to-handle, heavy bulk, and
major end items was misinterpreted, and also so that they could better
accommodate high-volume customers. Moreover, recurring savings
estimates were reduced by almost $79 million because DLA projects that
fewer personnel reductions will occur than the Commission estimated.
For example, DLA now estimates that 465 civilian positions will be
eliminated--more than 350 fewer positions than the Commission
estimated. DLA attributed the decrease in planned personnel reductions
to changes in operational requirements over time. Specifically, DLA
reports in its business plan that since the time of the original
request for data in September 2003, personnel efficiencies and
reductions due to mission and other workload changes have been
implemented at various distribution depots.
Although DLA projects savings of almost $632 million over the
implementation period, our analysis shows these savings should be
decreased to about $460 million over this period because the business
plan included almost $172 million in expected savings that we believe
should not be counted as BRAC savings. Once DLA realized that estimated
savings from duplicate inventory would not occur as originally planned,
it replaced the $704 million initial one-time savings estimate and $306
million of its recurring savings estimate in its business plan with
estimated savings from four inventory reduction initiatives.[Footnote
19] As we previously reported in October 2007, while these initiatives
are inventory related and may produce savings, we believe that three of
these initiatives, totaling about $172 million, are not the direct
result of BRAC actions and therefore are not BRAC savings. The savings
from these three initiatives resulted from pre-BRAC actions and
initiatives already planned by the services and would have occurred
regardless of BRAC. In commenting on our October 2007 report, DOD
stated that it considered the savings from these inventory reduction
initiatives to be "enabled by the BRAC recommendation and therefore
should be attributable to the recommendation." We disagreed, and we
continue to believe that the $172 million in expected savings resulting
from the services' initiatives should not be counted as BRAC savings.
Even DLA's business plan acknowledges that these inventory savings
result from actions the services have already planned to implement. For
example, $104 million of these savings are attributed to the services'
initiatives to identify and eliminate dormant or obsolete inventory,
even though such actions respond to a supply regulation and are part of
DOD's routine materiel management practices.[Footnote 20] We believe
that including savings unrelated to BRAC actions distorts and
effectively overstates projected savings from implementing the SS&D
recommendation.
Estimated Net Annual Recurring Savings Reduced by $82 Million and
Estimated 20-Year Net Present Value Will Be Reduced by $1.8 Billion:
Although long-term savings are expected to occur, based on the
increased costs and decreased savings projected in DLA's SS&D business
plan and the exclusion of unrelated BRAC savings from inventory
reduction initiatives, we calculated that estimated net annual
recurring savings will be reduced by about $80 million and the
estimated 20-year savings will be reduced by more than $1.8 billion.
Using DLA's data, which included expected savings resulting from
inventory reduction initiatives that are not directly the result of
BRAC actions, we recalculated the net annual recurring savings
beginning in fiscal year 2012 and thereafter to be almost $123 million,
which is about $80 million or 40 percent less than the BRAC
Commission's estimate of about $203 million, as shown in table 4.
Because of the reduction in annual recurring savings, the expected 20-
year savings fall to about $1.1 billion--a 63 percent decrease from the
BRAC Commission's projected $2.9 billion in long-term savings.
Table 4: Comparison of BRAC Commission's Long-Term Savings Estimates to
GAO's Recalculated Estimates for the SS&D Recommendation as of
September 2007 (Fiscal year 2005 constant dollars in millions):
Category: SS&D net annual recurring savings (FY 2012-2025);
BRAC Commission estimate: $203.2;
DLA business plan: $147.9;
GAO analysis[A]: $122.8;
Variance increase/(decrease)[B]: ($80.4);
Percentage change: (40).
Category: SS&D 20-year net present value savings (FY 2006-2025);
BRAC Commission estimate: $2,925.8;
DLA business plan: $1,487.7[C];
GAO analysis[A]: $1,096.4;
Variance increase/(decrease)[B]: ($1,829.4);
Percentage change: (63).
Source: GAO analysis of DLA-provided data and the BRAC Commission 2005
report.
[A] Excludes three inventory-related initiatives included in the draft
September 28, 2007, SS&D business plan that are not directly the result
of BRAC actions and that we believe should not be counted as BRAC
savings.
[B] Represents the variance between the GAO analysis and the BRAC
Commission estimate.
[C] GAO estimate based on DLA business plan data.
[End of table]
Although Long-Term Savings Are Estimated to Occur, Net Savings Are
Estimated to Be Reduced by $530 Million over the Implementation Period
for the DLR Recommendation:
Although long-term savings are expected to occur, when increased costs
and reduced savings are taken into account, we estimate that the net
savings for implementation of the DLR recommendation will be reduced by
$530 million compared to the BRAC Commission's net savings estimate
over the fiscal year 2006 to 2011 implementation period. DLA estimates
one-time costs during this period are increasing by about $258 million-
-more than 194 percent--from the BRAC Commission estimates, due mainly
to changes in the operation and maintenance and military construction
costs. In addition, we estimate that one-time and recurring savings for
fiscal years 2006 through 2011 decreased by over $340 million from the
BRAC Commission estimates, due mainly to a reduction in inventory
savings driven by a 1-year delay in implementation, changes in the
number of civilian positions that would be eliminated or transferred in
place from the services to DLA, and DLA's inclusion of $71 million in
expected savings resulting from an inventory reduction initiative that
is not directly the result of BRAC actions. Based on increased costs
and decreased savings now projected in DLA's business plan and the
exclusion of unrelated BRAC savings from inventory reduction
initiatives, we calculated that the net annual recurring savings
beginning in 2012 are likely to be almost $113 million less than the
Commission estimated, and the 20-year savings through 2025 are likely
to be about $1.5 billion less.
Cost Estimates over Implementation Period Increased by $190 Million:
Our analysis of DLA's DLR business plan shows that the total cost
estimates for implementing the DLR recommendation increased by $190
million over the implementation period compared to the BRAC
Commission's estimates. As shown in table 5, DLA estimates that
implementation of this recommendation will cost DOD almost $402 million
over this period, which is a 90 percent increase over the Commission
estimate of almost $212 million. The BRAC Commission estimated one-time
costs would total nearly $133 million; however, DLA's business plan
shows that these costs are estimated to be about $390 million, an
increase of almost $258 million or 194 percent. Conversely, estimates
for recurring costs have decreased, and are estimated to be more than
$11 million, a decrease of about $68 million or 86 percent, rather than
almost $80 million as estimated by the Commission.
Table 5: Comparison of DLA's Cost Estimates to BRAC Commission Cost
Estimates for Fiscal Years 2006-2011 for the DLR Recommendation as of
September 2007 (Then-year dollars in millions):
Category: Total one-time costs;
BRAC Commission estimate[A]: $132.7;
DLA business plan: $390.4;
Variance increase/(decrease): $257.7;
Percentage change: 194.
Category: Total recurring costs;
BRAC Commission estimate[A]: $79.2;
DLA business plan: $11.4;
Variance increase/(decrease): ($67.8);
Percentage change: (86).
Total costs:
BRAC Commission estimate[A]: $211.9;
DLA business plan: $401.8;
Variance increase/(decrease): $189.9;
Percentage change: 90.
Source: GAO analysis of DLA's updated September 28, 2007, DLR business
plan and the BRAC 2005 report.
[A] These figures are presented in then-year dollars. While the BRAC
Commission reported its estimates in fiscal year 2005 constant dollars,
DLA subsequently converted them to then-year (current) dollars in its
business plans.
[End of table]
DLA attributes the almost $68 million decrease in recurring costs to
the removal of these costs from the business plan because these costs
will be reimbursed by the military services. The remaining $11 million
in recurring costs mainly represents the Army's share of recurring
costs related to the relocation of Army integrated material management
functions from Rock Island, Illinois to Detroit, Michigan.
According to the business plan, the almost $258 million increase in one-
time costs is primarily due to a nearly $134 million increase in
information technology costs and a $64 million increase in military
construction costs. Information technology cost estimates have
increased by $134 million for DLA's electronic procurement system to
support a business system modernization initiative that is intended to
provide DLA with the capability of managing the procurement of depot-
level reparables at all locations. We found that the BRAC Commission
estimates were based on incomplete data because the business processes
and corresponding information technology requirements were unknown at
the time the BRAC data were collected. As of December 2007, the
business plan reflects the information technology costs for the
development of an electronic procurement system, but the business plan
does not reflect the information technology costs to enable the
services to bridge their systems to the new DLA system. The services,
in conjunction with DLA, are still determining these requirements and
as a result, the business plans do not yet reflect final information
technology cost estimates. As DLA and the services further define these
requirements, DLA plans to include the associated costs in subsequent
business plans. In addition, the business plan shows increased one-time
costs of $64 million associated with changes in the construction
planned at the Detroit Arsenal.[Footnote 21] According to Army
officials, the BRAC Commission estimates were based on incomplete data
because contractor personnel were not included in the BRAC data
collected in September 2003. Since the BRAC Commission estimates, the
size of the administrative building planned for the Detroit Arsenal has
increased to include contractor personnel, and the plan for a parking
lot has been changed to a parking garage, both of which increase costs.
When discussing these construction increases with DLA and Army
officials, we were informed that these particular actions are not
related to the consolidation of depot-level reparable procurement, but
instead are related to the movement of integrated material management
personnel from other locations, such as Rock Island, as specified by
the BRAC Commission.
The DLR business plan does not discuss in detail the three elements
that comprise the recommendation: consolidation of depot-level
reparable procurement across DOD within DLA, the completion of the
transfer of consumable item management to DLA, and the relocation of
Army integrated material management functions from Rock Island,
Illinois to Detroit, Michigan. We worked with DLA to identify the costs
and savings associated with the three elements of the recommendation,
as shown in table 6. We found that relocation of integrated material
management functions accounts for almost half of total implementation
costs. This is attributable primarily to relocations which consolidate
various Army Tank-automotive and Armaments Command integrated material
management activities at Detroit, Michigan. According to the business
plan, the one-time estimated cost to relocate the Army integrated
materiel management functions to Detroit will be almost $184 million--
almost half of the over $390 million in one-time costs for implementing
the DLR recommendation over the implementation period.
Table 6: Total Costs and Savings for each Element of the DLR
Recommendation for Fiscal Years 2006-2011 as of September 2007 (Then-
year dollars in millions):
Category: One-time costs;
Consumable item transfer: $3.6;
Consolidation of depot-level procurement: $202.8;
Integrated material management: $183.9;
Total: $390.3.
Category: Recurring costs;
Consumable item transfer: $0.0;
Consolidation of depot-level procurement: $0.6;
Integrated material management: $10.8;
Total: $11.4.
Total costs:
Consumable item transfer: $3.6;
Consolidation of depot-level procurement: $203.4;
Integrated material management: $194.7;
Total: $401.7.
Category: One-time savings;
Consumable item transfer: $0.0;
Consolidation of depot-level procurement: $164.5;
Integrated material management: $0.0;
Total: $164.5.
Category: Recurring savings;
Consumable item transfer: $13.0;
Consolidation of depot-level procurement: $106.4;
Integrated material management: $0.0;
Total: $119.4.
Total savings:
Consumable item transfer: $13.0;
Consolidation of depot-level procurement: $270.9;
Integrated material management: $0.0;
Total: $283.9.
Net implementation costs/(savings):
Consumable item transfer: ($9.4);
Consolidation of depot-level procurement: ($67.5);
Integrated material management: $194.7;
Total: $117.8.
Source: GAO's analysis of DLA's September 28, 2007, DLR business plan
data.
[End of table]
Because the main source of net savings for this recommendation is the
consolidation of procurement and related support functions of depot-
level reparables, our review focused primarily on that element of the
recommendation. Although we did not focus on the consumable item
transfer and the integrated material management elements of the
recommendation, our analysis of DLA's business plan, as shown in table
6, shows that there are about $9 million in net savings over the
implementation period due to the consumable item transfer element of
the recommendation and no net savings over the implementation period
resulting from the integrated material management element.
Savings Estimates over Implementation Period Decreased by almost $341
Million:
Based upon our analysis, one-time and recurring savings estimates for
implementing the DLR recommendation over the fiscal year 2006 through
2011 BRAC implementation period have decreased by almost $341 million
from the BRAC Commission estimates. As shown in table 7, our analysis
shows that one-time savings for this recommendation are about $164
million. The BRAC Commission did not estimate any one-time savings for
this recommendation, but DLA reclassified $176 million of the BRAC
Commission's recurring savings related to inventory reduction as one-
time savings. Although DLA projects one-time savings of over $176
million over the implementation period, our analysis shows these one-
time savings should be decreased by almost $12 million to about $164
million over this period because the business plan included an
inventory reduction initiative that is not the direct result of BRAC
actions; hence, any savings attributable to this initiative should not
be considered BRAC savings. DLA and DOD officials contend that the
expected savings due to this initiative will be "enabled" by the
implementation of the DLR recommendation. However, while this
initiative is inventory related and may produce savings, the initiative
resulted from pre-BRAC actions and initiatives already planned by the
services and we believe the associated savings would have occurred
regardless of BRAC.
Table 7: Comparison of DLA's Savings Estimates to BRAC Commission
Savings Estimates for Fiscal Years 2006-2011 for the DLR Recommendation
as of September 2007 (Then-year dollars in millions):
Category: Total one-time savings;
BRAC Commission estimate[A]: $0.0;
DLA business plan: $176.2;
GAO analysis[B]: $164.5;
Variance increase/(decrease): $164.5;
Percentage change: 100.
Category: Total recurring savings;
BRAC Commission estimate[A]: $624.5;
DLA business plan: $178.7;
GAO analysis[B]: $119.4;
Variance increase/(decrease): ($505.1);
Percentage change: (81).
Total savings:
BRAC Commission estimate[A]: $624.5;
DLA business plan: $354.9;
GAO analysis[B]: $283.9;
Variance increase/(decrease): ($340.6);
Percentage change: (55).
Source: GAO analysis of DLA's updated September 28, 2007, DLR business
plan and the BRAC 2005 report.
[A] These figures are presented in then-year dollars. While the BRAC
Commission reported its estimates in fiscal year 2005 constant dollars,
DLA subsequently converted them to then-year (current) dollars in its
business plans.
[B] Excludes $71 million in expected savings DLA included in its draft
September 28, 2007, DLR business plan that resulted from an inventory
reduction initiative that is not directly the result of BRAC actions
and that we believe should not be counted as BRAC savings.
[End of table]
Our analysis shows that the recurring savings estimates for
implementing the DLR recommendation has decreased by over $505 million,
or 81 percent, from the BRAC Commission estimate. Although DLA projects
recurring savings of almost $179 million during the implementation
period, our analysis shows these savings should be decreased by over
$59 million to about $119 million over this period because the business
plan included an inventory reduction initiative that is not the direct
result of BRAC actions; hence, any savings attributable to this
initiative should not be considered BRAC savings. Thus, recurring
savings estimates are projected to total about $119 million, as
compared to the BRAC Commission's estimate of almost $625 million.
In addition to the exclusion of unrelated BRAC savings from inventory
reduction initiatives, the decrease in recurring savings occurred
primarily as a result of a reduction of $212 million in inventory
savings driven by a 1-year delay in implementation, adjustments in
workforce configurations due to misinterpretation of the data needed,
use of inaccurate data, and changes in operational requirements over
time. Additionally, civilian salary savings are now expected to be
lower than estimated because of confusion during the BRAC process in
defining the number of positions that would be affected, double
counting of positions to be eliminated, and changes in the workforce
levels at affected sites since the recommendation was made. For
example, Air Force officials told us that the Air Force interpreted the
request for data in a way that overstated the number of positions to be
eliminated or transferred in place, and Army officials told us that the
Army inadvertently double-counted some positions in the initial BRAC
request for data. In addition, we found that the Navy experienced
reductions in authorized personnel levels subsequent to the BRAC report
recommendations, leaving fewer positions available for reductions
through BRAC. DLA officials anticipate continued fluctuation in the
actual number of employees who will transfer and stated that the
business plans are living documents that are expected to be adjusted
over time to reflect the current view of requirements.
Estimated Net Annual Recurring Savings Reduced by Almost $113 Million
and Estimated 20-Year Savings Reduced by over $1.5 Billion:
Although long-term savings are estimated to occur, based on increased
costs and decreased savings projected in DLA's business plan and the
exclusion of unrelated BRAC savings from inventory reduction
initiatives for the DLR recommendation, we calculated that the
estimated net annual recurring savings are likely to be almost $113
million less than the BRAC Commission estimated and the estimated 20-
year savings are likely to be over $1.5 billion less. Using DLA's data,
which included expected savings resulting from inventory reduction
initiatives that are not directly the result of BRAC actions, we
recalculated the net annual recurring savings beginning in fiscal year
2012 and thereafter to be over $44 million, which is about $112 million
or 72 percent less than the BRAC Commission's estimate of almost $157
million, as shown in table 8. Because of the reduction in annual
recurring savings, the expected 20-year net present value of the
savings attributable to this recommendation decreases by over $1.5
billion--an 82 percent decrease from the Commission's projected long-
term savings of about $1.9 billion.
Table 8: Comparison of BRAC Commission's Long-Term Savings Estimates to
GAO's Recalculated Estimates for the DLR Recommendation as of September
2007 (Fiscal year 2005 constant dollars in millions):
Category: DLR net annual recurring savings (FY 2012-2025);
BRAC Commission estimate: $156.8;
DLA business plan: $53.4;
GAO analysis[A]: 44.0;
Variance increase/(decrease): ($112.8);
Percentage change: (72).
Category: DLR 20-year net present value savings (FY 2012-2025);
BRAC Commission estimate: $1,857.8;
DLA business plan: $486.9[B];
GAO analysis[A]: $332.3;
Variance increase/(decrease): ($1,525.5);
Percentage change: (82).
Source: GAO analysis of BRAC Commission and DLA's updated September 28,
2007, DLR business plan data.
[A] Excludes an inventory-related initiative included in the draft
September 28, 2007, DLR business plan that is not directly the result
of BRAC actions and that we believe should not be counted as BRAC
savings.
[B] GAO estimate based on DLA business plan data.
[End of table]
Costs Are Likely to Continue to Increase and Savings Estimates Are
Likely to Change as Implementation Proceeds:
Costs are likely to continue increasing and savings are likely to
change as DLA proceeds with implementation of the SS&D and DLR
recommendations, primarily because of unknown costs and the assumptions
that were used in estimating savings, but no methodology to monitor and
report actual costs and savings has been fully implemented. For the
SS&D recommendation, we found that costs are likely to increase
primarily because information technology costs and the costs to
redistribute required inventory among the various strategic
distribution platforms and forward distribution points were unknown at
the time the BRAC Commission developed its estimates. As of December
2007, these requirements and costs were not fully developed. For
example, DLA officials informed us that the costs for redistributing
inventory among DLA's depots are estimated to be around $100 million
for each service, but these amounts have not been finalized or included
in the business plans yet and could be higher once requirements are
finalized. The magnitude of savings over time is also likely to change
as DLA implements the SS&D recommendation. For example, the BRAC
Commission's savings estimate included savings associated with the
elimination of almost 22 million square feet of warehouse space. This
figure was subsequently reduced to over 15 million in the SS&D business
plan. However, officials from DLA's Defense Distribution Center told us
that the square footage reduction would actually be even less than this
reduced estimate because they do not expect needed inventory reductions
to occur. For the projected savings in the business plan to
materialize, inventory owned by the services and DLA would need to be
reduced by 41 percent. At the time of our review, the Defense
Distribution Center was conducting an analysis of this inventory to
make recommendations of inventory items that could be eliminated.
Because the services own a considerable portion of the inventory that
would need to be reduced, DLA officials anticipate that the services
will be reluctant to dispose of this inventory. DLA has no authority to
direct the services to reduce their inventory, and so must rely on the
services to voluntarily dispose of it. To the extent that the services
retain inventory levels that do not meet the 41 percent reduction,
savings will be reduced accordingly. In addition, increases or
decreases in savings will be dependent on the realization of
assumptions regarding DLA's efficiency and effectiveness in supporting
its industrial customers, the extent of duplicate inventory reductions,
the recurring savings associated with inventory reductions, and whether
reductions in estimated warehouse space actually materialize.
Costs are also likely to increase and savings are likely to change as
DLA proceeds with implementation of the DLR recommendation. Like the
SS&D recommendation, the DLR recommendation will require additional
costs that are still unknown at this time. For example, in its
concurrence statements to the September 2007 draft DLR business plan,
the Navy made reference to its unknown information technology
requirements and costs, and the Army stated that it was continuing to
work with DLA to refine these requirements, which would be funded
outside of the BRAC account. In the October 2006 approved DLR business
plan, the Army noted that the $8.7 million identified in the plan was
significantly understated for its information technology requirements.
Moreover, estimated savings are subject to change depending on whether
assumptions used in the estimating process are actually realized. For
example, the Supply and Storage Joint Cross-Service Group assumed DLA
can increase the amount of depot-level reparables purchased using long-
term contracts by 2 percent per year from fiscal years 2008 through
2011. In theory, DLA would achieve some price savings as a result of
consolidating the buying power of all the services into single
contracts. We reported in July 2005 that the Supply and Storage Joint
Cross-Service Group estimated DLA can save 2.8 cents on each contract
dollar placed on performance-based agreements. DLA officials also
informed us that they hope to reduce the amount of inventory and
associated holding costs of these depot-level reparables by reducing
procurement lead times from current levels.[Footnote 22] Shorter
procurement lead times can enable the same level of support with
smaller inventories and smaller holding costs. These savings
assumptions were attributed to reductions in the cost of money, cost of
stock losses due to obsolescence, and cost of storage in our 2005
report.[Footnote 23] The Supply and Storage Joint Cross-Service Group
estimated that these factors together save about 17 percent of the
estimated value of the acquisition cost of the stock that is no longer
required to be held in inventory. Some smaller savings were to be
realized by reducing the number of overall employees performing this
function and also from spending less on base operations support as a
result of having fewer employees. Increases or decreases in savings
associated with the DLR recommendation will be dependent on the
realization of these assumptions regarding consolidation of buying
power, reduction of inventory, shorter procurement lead times, and
personnel reductions.
In our July 2005 report, we also expressed concern that business
process reengineering recommendations such as the SS&D and DLR
recommendations could lead to a false sense of savings and lead to
premature reductions in affected budgets in advance of actual savings
being fully realized, as has sometimes occurred in past efforts to
achieve savings through business process reengineering efforts. We
identified in our July 2005 report the lack of adequate systems to
track and update costs and savings as a concern regarding prior BRAC
rounds. These concerns are reinforced by limitations in DOD's financial
management systems that historically have made it difficult to fully
identify the costs of operations and provide a complete baseline from
which to assess savings.[Footnote 24] DLA has recognized the need to
track and update actual costs and savings resulting from BRAC actions.
While DLA had, as of October 2007, developed a methodology with clear
metrics for measuring the magnitude of actual costs and savings for the
DLR recommendation, no such methodology existed for the SS&D
recommendation. DLA officials told us that a similar methodology would
be developed for the SS&D recommendation after the business plan is
approved by the Office of the Secretary of Defense. Until DLA develops,
approves, and implements methodologies for monitoring and periodically
reporting on costs and savings in the future, the variances and cost
and savings uncertainties associated with implementation of these
recommendations may prevent Congress and DOD decision makers from
having the most complete information possible as they assess the
relative financial performance of implementing these BRAC
recommendations.
DLA Has Made Progress in Planning for the Implementation of the 2005
BRAC Recommendations but Faces Several Challenges that It Is Taking
Actions to Address:
While DLA's progress to date has focused primarily on planning efforts
to implement these two recommendations, DLA faces several challenges as
implementation proceeds and is taking actions to address them. DLA's
early efforts have focused on developing implementation planning
documents, such as a concept of operations and business plans;
coordinating actions with the military services; and addressing
challenges that arise during the planning process. Physical
implementation actions--such as actual construction, transfers and
movement of personnel, realignment of functions and inventory, and
reductions in infrastructure--only began during the latter part of
2007. However, several challenges must be overcome to mitigate the
potential adverse consequences on the services' depot-level operations
and readiness that may occur during the implementation process. These
challenges include addressing issues related to equipment readiness,
business operations, information technology, human capital, and timely
funding. DLA has taken several actions to address some of these
challenges, but the effectiveness of these actions is still to be
determined as implementation continues.
Early Efforts Have Focused on Establishment of an Implementation Office
and Development of Operational and Planning Guidance:
In anticipation of the BRAC Commission recommendations becoming
effective in November 2005, DLA established an implementation office,
referred to as the Materiel Readiness Project Office, and began taking
organizational and planning actions in September 2005 to implement the
Commission's recommendations. The office's primary mission is to manage
the implementation of all BRAC recommendations for which DLA is the
business manager, and in so doing it is charged with integrating and
coordinating with the military services and DOD components to ensure
that the intent of the recommendations is achieved upon implementation.
The office operates within an established governance structure, as
shown in figure 4, that provides access to higher management levels
within DLA and the Supply and Storage Joint Cross-Service Group and
incorporates on-site representation from the military services to
provide assistance and guidance on implementation issues.
Figure 2: Command Relationship in Governance Structure:
[See PDF for image]
The Command Relationship in Governance Structure is illustrated in an
organizational chart in the following manner:
Top level:
* Director, DLA (association with Joint Cross Service Group).
Second level:
* Vice-Director, DLA (association with Material Readiness Component
Advisory Group).
Third level:
* Logistics Operations and Readiness.
Fourth level:
* BRAC Materiel Readiness Project Office (association with Material
Readiness Component Advisory Group).
Fifth level, associated with BRAC Materiel Readiness Project Office:
* Storage Distribution;
* Depot Level Reparable;
* Consumable Item Transfer;
* Army Team;
* Navy Team;
* Air Force Team;
* Marine Corps Team.
Sixth level, associated with each of the teams:
* Corporate Installations;
* Human Resources;
* Logistics Operations;
* Environmental Quality Division;
* Information Operations;
* Financial Operations;
* General Counsel;
* Public Affairs;
* Legislative Affairs.
Source: GAO.
[End of figure]
A key feature of the governance structure is the formation of
integrated process teams, which include representatives from DLA and
the services and have overall responsibility and accountability for
planning and implementing the DLA-managed recommendations.[Footnote 25]
The responsibilities of these teams include developing the detailed
business plans, forwarding and presenting major issues up through the
governance structure, and ensuring that implementation of the
recommendations is in accordance with the BRAC Commission's
recommendations. The governance structure also incorporates a
capability to engage subject matter experts resident in DLA and the
service components in areas such as finance, human capital, and
information technology--areas that are integral to the successful
implementation of the recommendations.
In addition to these organizational considerations, DLA has developed
operational and planning guidance for implementing both
recommendations, such as concepts of operations, implementation plans,
and business plans. The concepts of operations guidance establishes the
overall joint policy and operational agreements reached between DLA and
the services for implementing the 2005 BRAC recommendations.
Implementation plans specify actions to be taken to implement the
overall policy and concepts established in the concept of operations.
Finally, the business plans serve as the foundation for the program
management necessary to ensure that the DLA-managed BRAC
recommendations are implemented efficiently and effectively and will
serve as the basis for allocation of resources. The business plans
identify, among other things, planned implementation actions, movement
schedules, financial plans, and construction details. It is the Office
of the Secretary of Defense's intent, in its oversight role, to review
the business plans for these recommendations, as well as all other BRAC
recommendations, every 6 months. Because implementation of the BRAC
recommendations is still in the early stages, the operational and
planning guidance for these recommendations is expected to continue to
evolve throughout the implementation period to reflect changes in
available resources and the evolving nature of the implementation
process.
Physical Implementation Actions Are Scheduled for Completion by
September 2011:
Physical implementation of the two recommendations began in October
2007 and is scheduled to be completed in September 2011 as mandated by
the BRAC statute. The reconfiguration of DLA's supply, storage, and
distribution operations will affect 17 sites. As shown in table 9,
physical implementation actions for this recommendation began with
personnel transfers and the consolidation of inventory in October 2007,
and will end with the completion of inventory consolidation in
September 2011. All 17 sites will either move personnel associated with
supply, storage, and distribution operations to new worksites or will
transfer personnel in-place to DLA control. All 12 forward distribution
points are scheduled to move inventories to comply with the SS&D
recommendation. Construction to improve the infrastructure used for
storing and distributing supplies will occur at three of four strategic
distribution platforms--Oklahoma City, Susquehanna, and Warner Robins.
The recommendation regarding procurement of depot-level reparables will
affect 18 sites. As table 9 shows, physical implementation actions for
this recommendation began with personnel transfers in May 2008 and are
scheduled to end with completion of personnel moves and military
construction in September 2011. All 18 sites will either move personnel
associated with procurement of depot-level reparables to new worksites
or will transfer personnel in-place to DLA control. Construction
related to the DLR recommendation will occur only at 1 site--the
Detroit Arsenal, Michigan. Unlike the SS&D recommendation, there is no
scheduled movement of inventories associated with the DLR
recommendation.
Table 9: Scheduled Start and End Dates of Physical Implementation
Actions for the DLA SS&D and DLR Recommendations:
2005 BRAC implementation period.
Action: SS&D: Inventory[A];
Time frame: October, 2007 - September 2011.
Action: SS&D: Personnel[B];
Time frame: October, 2007 - September 2010.
Action: SS&D: Construction[C];
Time frame: December, 2007 - April 2011.
Action: DLR: Personnel[B];
Time frame: May, 2008 - September 2011.
Action: DLR: Construction[C];
Time frame: October, 2008 - September 2011.
Source: GAO analysis of September 2007 SS&D business plan and the
September 2007 DLR business plan.
[A] Time frame for movement of inventory.
[B] Time frame for personnel moves and transfers.
[C] Time frame for military construction projects.
[End of table]
DLA Faces Several Implementation Challenges:
DLA faces several challenges in implementing these two BRAC
recommendations for which it is the business manager. DOD recognized as
early as September 2005 that implementing business process
reengineering recommendations such as these within the BRAC process
would present significant challenges because they present a major
change in the way current business operations are conducted. These
challenges, which DLA recognizes as ones needing attention as
implementation progresses, focus on issues concerning (1) maintaining
equipment readiness, (2) transitioning to a new concept of business
operations, (3) developing information technology solutions, (4)
managing human capital issues, (5) fully realizing savings and the
impact of failing to do so on future budgets, and (6) securing timely
funding to implement the recommendations.
Maintaining Equipment Readiness:
With both the SS&D and DLR recommendations, an implementation challenge
repeatedly expressed by service officials was that DLA might not be
able to maintain the same level of service needed to maintain equipment
readiness. Service officials stated that when DLA takes over the supply
support and procurement functions, it might not be able to provide the
right kind of supplies and parts within the time frames needed to
support the service's industrial or depot operations. If this occurs,
equipment readiness could be adversely affected. Regarding supply
support, DLA has not previously been responsible for providing the
services with supplies at the retail level. Retail-level supply stocks
are generally readily available supplies that are owned by the services
and located in places such as maintenance facilities where repairs are
conducted. If repair parts are not available when needed, the services
expressed concern that it could impair readiness. For example, we asked
officials at Air Force Materiel Command what the budget impact on the
Air Force would be if DLA's implementation of the SS&D recommendation
resulted in the addition of an extra day to the time required to repair
spare parts at the Air Logistics Centers. Air Force Materiel Command
calculated that accommodating this extra day without impairing
readiness would cost more than $48 million annually. DLA and service
depot-level officials informed us that a primary reason for this
concern is that the services' production and maintenance operations
experienced significant disruption during a previous transition period
when DLA assumed wholesale management of consumable items in the early
1990s. DLA and Army officials said that the Army remains unconvinced
that DLA can make the transition with retail-level supplies without
significantly disrupting the maintenance operations again. Furthermore,
each of the services has a different system for determining retail-
level supply requirements, of which the Army's system is the most
complex, according to DLA officials. As a result, Army officials in
particular expressed concern that DLA may not understand their system
well enough to accurately determine the type and quantity of supplies
needed, and so may be unable to procure the supplies needed in a timely
manner.
In addition, the services are concerned that DLA has historically
procured and managed consumable items--items that are not repaired for
further use, such as nuts and bolts--rather than the more complex
reparable items required under the DLR recommendation. Service
officials noted that one of the critical differences between depot-
level reparables and consumables is the long lead time associated with
procuring some depot-level reparables. Service officials told us that
procurement contracting officials will need to monitor these items to
ensure that contracting efforts begin early enough to accommodate these
long lead times and thereby sustain readiness levels. For example, Air
Force officials at Robins Air Force Base expressed concern that DLA
contracting officials may not be sufficiently familiar with the
differences between reparables and consumables and the readiness
implications of these differences, which could potentially degrade
equipment readiness.
Consequently, officials from each service stated that they would prefer
DLA to proceed slowly in implementing these recommendations--namely by
assuming easier functions prior to taking over more complex functions-
-in order to minimize any potential degradation of readiness. In
response to the services' concerns, DLA is implementing both the SS&D
and DLR recommendations with a risk-based, time-phased implementation
process that moves from the least complex, lower-risk functions to the
most complex and difficult functions using a time-phased approach.
Service officials at the depot-level we spoke with generally stated
that they were indifferent about DLA assuming the supply support and
depot-level reparable procurement functions, as long as they continued
to receive the same level of support from DLA as they now provide for
themselves. As of December 2007, Warner Robins Air Logistics Center is
the only site to complete the transfer of supply, storage, and
distribution personnel to DLA for either recommendation. According to
DLA and Air Force officials, there has not been a degradation of
equipment readiness due to the transfer, which occurred in October
2007. While the supply, storage, and distribution transfer has been
successful at Warner Robins to this point, DLA will continue to be
confronted with challenges in maintaining equipment readiness as the
implementation of the recommendations proceed.
Transitioning to a New Concept of Business Operations:
Officials from the services and DLA cited challenges in transitioning
to a new concept of business operations for the recommendations. The
focus of the two recommendations is business process reengineering,
which is intended to create a more effective supply, storage, and
distribution framework and efficiencies in procuring depot-level
reparables. In regards to the SS&D recommendation, DLA faces a
challenge in developing a new pricing methodology that would be
reasonable to use when it takes over the services' SS&D functions.
Depot maintenance officials expressed concern that if the transfer of
production integrated supply functions to DLA takes place using DLA's
existing price structure, it would likely increase the cost of depot
maintenance operations. These officials stated that the depots may then
have to pass these additional costs on to their customers by increasing
their hourly rates. DLA officials told us, however, that they plan to
develop a new pricing methodology as they gain more experience in
transitioning to the new way of business in interacting with the
depots, as discussed below in the section regarding performance-based
agreements. In regards to the DLR recommendation, DLA faces challenges
in the development of a new concept of business operations, which is
predicated on the services relinquishing control over the procurement
of depot-level reparables to DLA, in order to create efficiencies in
the procurement process. For example, according to DLA officials, DLA
may be limited in its ability to achieve the expected savings to the
extent that the services bundle the procurement of depot-level
reparables with the maintenance of these depot-level reparables in
comprehensive contracts. Ownership and oversight of contracts that
bundle procurement and maintenance for a depot-level reparable will
remain with the respective services, potentially reducing DLA's ability
to capture expected efficiencies.
Developing Information Technology Solutions:
Officials from the services and DLA identified several challenges about
developing information technology solutions to implement the DLR and
SS&D recommendations. DLA has existing systems that it uses for DLA-
managed items. Likewise, each of the services has its own information
technology system to manage its items. Before DLA assumes
responsibility for the procurement of depot-level reparables and
responsibility for carrying out supply, storage, and distribution
functions for DOD, it needs to identify which service systems it must
interface with, and then develop solutions to bridge DLA's systems with
the service systems. DLA and the services are working together to
identify affected business processes and necessary bridges for existing
systems to make these business processes and systems work together in
the short term, so that DLA can manage its new responsibilities within
the implementation time period. When the BRAC Commission estimate was
prepared, it included one-time information technology workstation and
user support costs for implementing the recommendations. However, the
estimate included only almost $37 million for systems development
because the actual system requirements and costs were unknown. The
information technology cost estimates in DLA's business plans have
increased from these initial BRAC estimates to almost $188 million, but
this figure will continue to evolve because the requirements are not
fully developed and associated costs are dependent on those
requirements. As it now stands, the business plans' information
technology cost estimates are for expanded capabilities on DLA systems,
such as the electronic procurement system for the DLR recommendation
previously discussed, in order to provide DLA with the technological
capability to implement effectively the recommendations. DLA is
currently in the process of working with the services to determine
future information technology requirements necessary for the
implementation of the recommendations. Until the affected business
processes are identified and information technology interface
requirements are determined, the projected costs will not be fully
identified and questions will arise as to the availability and timing
of funding requirements to meet information technology needs. As a
result, continued cost increases are likely as implementation of the
SS&D and DLR recommendations proceeds.
Managing Human Capital Issues:
Officials from the services and DLA also identified challenges
regarding the management of human capital issues as the recommendations
are implemented. According to depot-level service officials, one
critical assumption made in the SS&D and DLR recommendations is that
service personnel will transfer on an "as-is, where-is" basis to DLA,
which means that employees in transferred positions will perform the
same duties they are currently performing at the same location during
the same working hours. According to DLA officials, the only difference
will be that the employees will then work for DLA instead of one of the
services. However, service officials have expressed doubts about the
willingness of current experienced personnel to transfer on an "as-is,
where-is" basis to DLA. For example, in anticipation of the SS&D
transfer, some workers are making decisions to retire or are pursuing
positions elsewhere in the depots. Tobyhanna Army Depot officials, for
instance, said that since the pending transfer process was announced,
six employees who would have been expected to transfer to DLA have
either retired or found positions in other areas of the depot. In
regards to the DLR recommendation, officials at Robins Air Force Base
explained that one of the reasons for potential unwillingness to
transfer to DLA is the lower-dollar-value contracting thresholds in DLA
as compared to the services. These officials stated that existing
service personnel qualified to contract at higher thresholds would
likely perceive this change as a demotion.
Service officials also expressed their belief that DLA has a lower pay-
grade structure than the services. Moreover, employee union
representatives said that depot employees' future advancement potential
may be more limited at DLA, unless they are willing to move to other
DLA locations. In regards to the DLR recommendation, we were told by
officials at Robins Air Force Base that there is a perception that
moving from a multipurpose contracting position in a service to a
procurement-only position in DLA would be detrimental to career
progression, viewed by contracting officers as harming their chances
for promotions when they compete against other contracting officers who
are not limited to procurement activities. Additionally, these
officials expressed concern that DLA could eventually transfer the
procurement function and its associated personnel to the Inventory
Control Point in Richmond, Virginia.
Furthermore, with respect to the SS&D recommendation, when DLA takes
over the SS&D function, a 6½ percent efficiency elimination reduction
is planned for the existing supply depot support workforce. The
services are concerned that with the A-76 competitions, most efficient
organization, and other personnel efficiency initiatives that have
taken place since the BRAC data were collected and this efficiency
assumption was put in place, the number of service SS&D personnel has
already been drastically reduced and further reductions could adversely
impact operations. Service officials stated that if DLA further reduces
service SS&D personnel, then the services may be unable to get the
support they need, which may affect readiness.
Due to the numerous human capital challenges confronting DLA, the
services are concerned whether DLA will be able to maintain the same
level of experience possessed by existing service personnel to carry
out the procurement and supply, storage, and distribution functions.
Service officials believe that such a lack of experience could
adversely affect DLA's ability to provide the same level of support now
being provided by the services. As of December 2007, Warner Robins Air
Logistics Center is the only site to complete the "as-is, where-is"
transfer for either recommendation. According to DLA and Air Force
officials, the transfer of 265 supply, storage, and distribution
positions to DLA occurred in October 2007. Of these 265 positions
transferred, DLA was successful in retaining 240 personnel conducting
the functions, resulting in only 25 vacancies--a normal vacancy rate--
that has not disrupted maintenance production schedules to date. While
the supply, storage, and distribution transfer has been successful at
Warner Robins to this point, DLA will continue to be confronted with
human capital challenges in the transfers that will occur over the next
several years. DLA recognized that human capital issues would be a
challenge early in the implementation process, and established the
human capital integrated process teams comprised of DLA and service
officials that are working to develop solutions to address these
issues.
Failing to Fully Realize BRAC Estimated Savings May Negatively Affect
Budgets:
Service officials we spoke with also voiced concerns regarding the
potential negative effect on their budgets if the savings estimated by
the BRAC Commission are not fully realized. DOD budget guidance directs
the closed or realigned components to finance the difference between
the start-up funding allocated by DOD and the actual costs of
implementing the recommendations. To the extent that savings are not
realized and are insufficient to offset this difference, service
officials stated that they are concerned about having to make up the
difference out of their own budgets. Service officials expressed
concern that unrealized BRAC estimated savings would be summarily taken
from service budgets, which could have multiple adverse consequences,
including threatening readiness levels. For example, appropriations for
maintenance and weapon system management may have to be reprogrammed to
pay for implementation of the BRAC recommendations. Officials from
several of the services stated that there was clearly a departmentwide
emphasis on achieving savings and noted that DLA does not have a large
budget to offset unrealized savings.
Obtaining Timely Funding for Implementation of Recommendations:
Early in the implementation period process, DLA experienced difficulty
obtaining timely funding to begin physical implementation of the SS&D
and DLR recommendations. DOD provided about $13 billion in start-up
funds for implementing all 2005 BRAC recommendations. These funds were
distributed to DLA and the service components through a program budget
decision, which allocated the start-up funding by fiscal year based on
the BRAC Commission's estimates of the components' proportional share
of one-time implementation costs for all of the BRAC recommendations
that affected them.[Footnote 26] The components were directed to
finance the difference between the start-up fund amounts and actual
implementation costs within the statutory 6-year period. The decision
did not specify how the components were to spend the funds or what
recommendations should be funded in which years. Because of the joint
nature of these two recommendations, DLA as the business manager had to
obtain each service's proportional share of their allocation of the
start-up funding as well as its own BRAC allocation. As a result, early
in the planning phase DLA had to coordinate with each of the services
regarding when and how much, if any, of the start-up funding would be
provided to begin implementation of these recommendations, according to
DLA officials. This required considerable coordination and interaction
with the services to align sufficient available funding to coincide
with DLA's initial implementation schedule as specified in the business
plans. However, this alignment process did not initially occur,
resulting in a slippage on the implementation planning dates. For
example, according to Army officials, the Army decided not to provide
any funding for fiscal years 2006 or 2007, but rather to determine its
level of funding commitment for each of these two recommendations
during development of its fiscal year 2008 budget. During the early
planning phase, several DLA officials told us they believed that DOD's
method of allocating start-up funds created a climate of uncertainty,
requiring considerable coordination and interaction between DLA and the
services to devise a funding plan for implementation. Our analysis of
the fiscal year 2008 through 2009 president's budget for these two BRAC
recommendations shows that this funding challenge may have been
somewhat mitigated because the planned funding now budgeted by the
services and DLA is reasonably close to the amounts estimated in the
business plans. However, these early budget challenges indicate that
unless close attention is paid to subsequent budgets when they are
developed, successful implementation of these two recommendations may
be jeopardized.
DOD and DLA Have Taken Several Actions to Address Some Challenges, but
Effectiveness of These Actions Is Unknown:
To ensure successful implementation of the SS&D and DLR
recommendations, DOD and DLA have taken several actions to address some
challenges and mitigate implementation risks, but the effectiveness of
these actions is unknown. As we previously reported in October 2007,
DLA is developing plans to minimize the risk associated with
implementation of the SS&D recommendation.[Footnote 27] While no plan
can guarantee the prevention of disruptions, DLA's plans for
implementing both the SS&D and DLR recommendations incorporate several
features that we believe, if implemented as intended, are likely to
lessen the risk associated with these recommendations. These features,
some of which are designed to address challenges faced by DLA and the
services, include retaining the BRAC governance structure; using a risk-
based, time-phased approach; using "as-is, where-is" personnel
transfers; using integrated process teams to address challenges and
mitigate risks; and developing memoranda of agreement and performance-
based agreements.
* Governance structure: A significant action DOD took was to retain the
governance structure it used to develop the 2005 BRAC recommendations,
as previously discussed. As the implementation planning phase began,
DLA expanded this governance structure by creating the Materiel
Readiness Project Office within DLA in September 2005 specifically to
develop execution processes and manage the implementation planning for
several BRAC recommendations. In April 2007, DLA issued an order that
transferred the established BRAC governance structure, including the
existing Materiel Readiness Project Office, from DLA's planning
division to its Logistics Operations and Readiness division to oversee
and manage the implementation phase, with the organizational structure
and governance remaining virtually the same as it was during the
planning phase. Thus, within DLA, accountability for each
recommendation has been established, service representation has been
incorporated, and working groups actively assess challenges and develop
solutions to mitigate risks.
* Risk-based, time-phased implementation process: DLA has developed a
risk-based, time-phased approach to implement the recommendations and
mitigate risks. This implementation approach moves from the least
complex, lower-risk functions up to the most complex and difficult.
Additionally, implementation of both recommendations is to be phased
across the services during the implementation period, and within each
service implementation will take place sequentially at affected sites.
This risk-based, time-phased approach has been approved within the
governance structure for both recommendations and is aimed at
mitigating risks to readiness by phasing in the recommendations to
allow for the focused dedication of resources for individual sites, the
capture and incorporation of "lessons learned" as implementation
proceeds.
* "As-is, where-is" transfer: The transfer of DLR procurement and SS&D
positions is to occur on an "as-is, where-is" basis, which means that
employees in transferred positions will perform the same duties at the
same location during the same working hours. According to DLA
officials, the only difference will be that the employees will then
work for DLA instead of one of the services. To the extent that this
construct is implemented, there would likely be less potential for
disruptions to procurement actions or maintenance production schedules.
For example, at Warner Robins Air Logistics Center, 265 positions were
transferred to DLA in October 2007. According to DLA and Air Force
officials, DLA successfully retained personnel in 240 of these 265
positions, resulting in only 25 vacancies. These officials explained
that this is a normal vacancy rate that has not disrupted maintenance
production schedules to date.
* Integrated process teams and the plan of action and milestones: DLA
is using integrated process teams to address challenges and mitigate
risks during the implementation planning phase and actual
implementation for both recommendations. The integrated process teams
assist in the development of a comprehensive action plan, referred to
as the Plan of Action and Milestones, for implementation planning. The
plan includes specific and detailed actions that identify each task's
duration, including start and completion dates; percentage completed;
organization and personnel assigned; criticality of task; and
milestones. Furthermore, the integrated process teams meet regularly to
discuss implementation issues, work through problems and concerns, and
identify potential solutions and mitigating actions where possible. The
integrated process teams raise unresolved issues to higher levels for
resolution. DOD envisions this process continuing throughout the 6-year
implementation period.
* Memorandums of agreement and performance-based agreements: To
mitigate the risks associated with implementing the SS&D and DLR
recommendations, DLA and the services are negotiating memoranda of
agreement to establish business rules that set forth the requirements
and responsibilities for implementation planning and activities. DLA
and the services also plan to negotiate performance-based
agreements[Footnote 28] that will establish the responsibilities,
metrics to measure performance, costs, and business rules that should
help minimize the risk of disrupting depot maintenance. For example, in
November 2007 DLA and the Air Force reached agreement on five metrics
to be tracked to assess DLA's performance in providing the supply,
storage, and distribution functions at the Air Force's maintenance
facilities.
As discussed above, many challenges will need to be worked out during
implementation, but DLA has taken several initial actions which we
believe are positive steps that can enable DLA to address these
challenges by working through concerns and identifying potential
solutions and mitigating actions where possible. Although the
effectiveness of these actions will be unknown until implementation
progresses further and problems arise and are addressed, service
officials we spoke with expressed satisfaction with the governance
structure and the implementation planning actions that have taken place
to date. According to DOD officials, the differing cultures of the
services and DLA as well as the inertia of practices that have existed
for years make transitions to newly designed business processes
inherently difficult. Thus, as implementation progresses further and
more actions are undertaken, the potential for disruptions to the
services' industrial operations and possible degradations in readiness
will continue to exist. Because we believe that DLA's current plans
incorporate several features that, if implemented as intended, are
likely to lessen the risk associated with these recommendations, we are
not making any specific recommendations at this time regarding further
actions that may be needed to mitigate potential disruptions.
Nonetheless, we believe continued collaboration and monitoring of the
execution of BRAC actions as implementation proceeds are essential to
enable DLA to take corrective actions as necessary to prevent adverse
effects.
Conclusions:
Accurately accounting for savings associated with the BRAC
recommendations provides decision makers with credible information for
assessing the financial performance of the implementation efforts and
supports decision making regarding the formulation of future budgets
and associated resources needed to successfully implement the
recommendations. We believe that accurately accounting for savings on a
timely basis requires that only savings directly attributable to BRAC
actions be considered as BRAC savings and that methodologies be
implemented for periodically tracking and updating actual savings over
time. Without this accounting, decision makers may be unable to make
informed decisions regarding financial performance or future budgets.
In this regard, we believe that DLA's inclusion of expected savings in
its business plans that are not directly attributable to BRAC is
inappropriate and has the effect of overstating the savings that the
department expects from implementing these BRAC recommendations.
Further, given the potential for significant variability in the savings
to be achieved from implementing these recommendations, we believe it
is essential that DLA implement methodologies to periodically monitor
and update savings from these recommendations throughout the
implementation period. We are encouraged that DLA has taken steps to
partially complete the development of such methodologies. Unless these
methodologies are developed, approved, and implemented, the savings
attributable to BRAC cannot be accurately monitored as implementation
proceeds.
To ensure that implementation of all required BRAC actions is completed
by the end of fiscal year 2011, adequate funding must be secured not
only from within DLA but also from the military services. Early in the
implementation process, funding became an issue as some difficulties
arose in obtaining sufficient funding from the services to meet
implementation milestones. This required considerable coordination and
interaction between DLA and the services to align sufficient start-up
and implementation funds with DLA's planned implementation schedule.
While funding issues are now somewhat mitigated, we believe that the
early budget challenges, coupled with increased funding needs in the
latter portion of the implementation period, indicate that unless close
attention is paid to subsequent budgets when they are finalized,
success with the full implementation of these two recommendations
within the milestone schedules may be jeopardized.
Recommendations for Executive Action:
To provide a more accurate projection of savings associated with
implementing the DLA-managed BRAC recommendations, we recommend that
the Secretary of Defense direct the Director of the Defense Logistics
Agency to revise its business plans to exclude all expected savings
that are not the direct result of BRAC actions. Such revisions should
exclude, for example, the $172 million in potential savings for
implementing the SS&D recommendation and the $71 million in potential
savings for implementing the DLR recommendation that resulted from pre-
BRAC actions associated with inventory reduction initiatives already
planned by the services that would have occurred regardless of BRAC.
To provide greater accountability and visibility over the financial
performance of the DLA BRAC recommendations and to provide a basis for
preventing potential premature budget reductions, we recommend that the
Secretary of Defense direct the Director of the Defense Logistics
Agency to implement methodologies for periodically monitoring and
updating net savings for the SS&D and DLR recommendations throughout
the implementation period. Such methodologies, at a minimum, should
include:
* clear metrics for measuring the magnitude of actual costs and
savings,
* a comparison of the actual costs and savings to the prior estimates
to coincide with the required semiannual business plan updates, and:
* explanations for actual cost and savings variances from estimates
presented in the business plans.
To ensure adequate funding for successful implementation of the
recommendations within the BRAC implementation time frame, we recommend
that the Secretary of Defense direct the Secretaries of the Army, Navy,
and Air Force, the Commandant of the Marine Corps, and the Director of
DLA to ensure that necessary funding to meet implementation milestones
is reflected in all respective service and DLA budget submissions for
the remainder of the implementation period ending in fiscal year 2011.
Agency Comments and Our Evaluation:
In written comments on a draft of this report, DOD concurred with our
second and third recommendations but did not concur with our first
recommendation to have the Defense Logistics Agency revise its business
plans to exclude all expected savings that are not the direct result of
BRAC actions. We noted that such revisions should exclude, for example,
the $172 million in potential savings for implementing the SS&D
recommendation and the $71 million in potential savings for
implementing the DLR recommendation that resulted from pre-BRAC actions
associated with inventory reduction initiatives already planned by the
services that would have occurred regardless of BRAC. In its response,
DOD stated that while these particular potential savings were not
directly the result of BRAC actions, the estimated savings were enabled
by BRAC actions and should be attributable to the recommendations.
According to DOD, "enabled savings are savings initiatives that were
enhanced in some way by the BRAC implementation actions (e.g. increased
scope, more aggressively pursued or moved in new directions)." We
disagree and continue to believe that the $243 million in expected
savings resulting from the services' inventory reduction initiatives
should not be counted as BRAC savings. As we stated in this report,
while these initiatives are inventory related and may produce savings,
we believe that they are not the direct result of BRAC actions and
therefore are not BRAC savings. These particular savings initiatives
respond either to a DOD supply regulation[Footnote 29] to identify and
dispose of obsolete inventory or were initiated prior to November 2005
when the BRAC recommendations became effective.[Footnote 30] Because we
believe that the expected savings associated with these initiatives are
not the result of BRAC actions and would have occurred regardless of
BRAC, we do not believe that these savings should be counted as BRAC
savings.
DOD's written comments are reprinted in their entirety in appendix IV.
DOD also provided technical comments, which we have incorporated into
this report as appropriate.
We are sending copies of this report to other congressional committees
and members; the Secretary of Defense; the Secretaries of the Army,
Navy, and Air Force; the Commandant of the Marine Corps; and the
Director, Office of Management and Budget. We will make copies
available to others upon request. In addition, the report will be
available at no charge on GAO's Web site at [hyperlink,
http://www.gao.gov].
If you or your staff have any questions regarding this report, please
contact me at (202) 512-4523 or leporeb@gao.gov. Contact points for our
Offices of Congressional Relations and Public Affairs may be found on
the last page of this report. Staff members who made key contributions
to this report are listed in appendix V.
Signed by:
Brian J. Lepore:
Director, Defense Capabilities and Management:
List of Congressional Committees:
The Honorable Carl Levin:
Chairman:
The Honorable John McCain:
Ranking Member:
Committee on Armed Services:
United States Senate:
The Honorable Daniel K. Inouye:
Chairman:
The Honorable Ted Stevens:
Ranking Member:
Subcommittee on Defense:
Committee on Appropriations:
United States Senate:
The Honorable Tim Johnson:
Chairman:
The Honorable Kay Bailey Hutchison:
Ranking Member:
Subcommittee on Military Construction, Veterans Affairs, and Related
Agencies:
Committee on Appropriations:
United States Senate:
The Honorable Ike Skelton:
Chairman:
The Honorable Duncan L. Hunter:
Ranking Member:
Committee on Armed Services:
House of Representatives:
The Honorable John P. Murtha:
Chairman:
The Honorable C.W. Bill Young:
Ranking Member:
Subcommittee on Defense:
Committee on Appropriations:
House of Representatives:
The Honorable Chet Edwards:
Chairman:
The Honorable Zach Wamp:
Ranking Member:
Subcommittee on Military Construction, Veterans Affairs and Related
Agencies:
Committee on Appropriations:
House of Representatives:
[End of section]
Appendix I: Text of the BRAC Commission's Supply, Storage, and
Distribution Management Reconfiguration:
Realign Defense Supply Center Columbus, OH, by disestablishing the
Defense Distribution Depot Columbus, OH. Relocate the storage and
distribution functions and associated inventories to the Defense
Distribution Depot Susquehanna, PA, hereby designated the Susquehanna
Strategic Distribution Platform.
Realign Tobyhanna Army Depot, PA, by consolidating the supply, storage,
and distribution functions and associated inventories of the Defense
Distribution Depot Tobyhanna, PA, with all other supply, storage, and
distribution functions and inventories that exist at Tobyhanna Army
Depot to support depot operations, maintenance, and production. Retain
the minimum necessary supply, storage, and distribution functions and
inventories required to support Tobyhanna Army Depot, and to serve as a
wholesale Forward Distribution Point. Relocate all other wholesale
storage and distribution functions and associated inventories to the
Susquehanna Strategic Distribution Platform.
Realign Naval Station Norfolk, VA, by consolidating the supply,
storage, and distribution functions and associated inventories of the
Defense Distribution Depot Norfolk, VA, with all other supply, storage,
and distribution functions and inventories that exist at Norfolk Naval
Base and at Norfolk Naval Shipyard to support shipyard operations,
maintenance, and production. Retain the minimum necessary supply,
storage, and distribution functions and inventories required to support
Norfolk Naval Shipyard operations, maintenance and production, and to
serve as a wholesale Forward Distribution Point. Relocate all other
wholesale storage and distribution functions and associated inventories
to the Susquehanna Strategic Distribution Platform.
Realign Defense Supply Center Richmond, VA, by relocating the storage
and distribution functions and associated inventories of the Defense
Distribution Depot Richmond, VA, to the Susquehanna Strategic
Distribution Platform. Retain the minimum necessary storage and
distribution functions and associated inventories at Defense
Distribution Depot Richmond, VA, to serve as a wholesale Forward
Distribution Point.
Realign Marine Corps Air Station, Cherry Point, NC, by consolidating
the supply, storage, and distribution functions and associated
inventories of the Defense Distribution Depot, Cherry Point, NC, with
all other supply, storage, and distribution functions and inventories
that exist at Naval Aviation Depot Cherry Point, NC, to support depot
operations, maintenance and production. Retain the minimum necessary
supply, storage, and distribution functions and inventories required to
support Naval Air Depot Cherry Point, and to serve as a wholesale
Forward Distribution Point. Relocate all other wholesale storage and
distribution functions and associated inventories to the Defense
Distribution Depot Warner Robins, GA, hereby designated the Warner
Robins Strategic Distribution Platform.
Realign Robins Air Force Base, GA, by consolidating the supply,
storage, and distribution functions and associated inventories
supporting depot operations, maintenance, and production at the Warner
Robins Air Logistics Center with the supply, storage, and distribution
functions at the Warner Robins Strategic Distribution Platform.
Realign Marine Corps Logistics Base, Albany, GA, by consolidating the
supply, storage, and distribution functions and associated inventories
of the Defense Distribution Depot Albany, GA, with all other supply,
storage, and distribution functions and inventories that exist at the
Maintenance Center Albany, GA, to support depot operations,
maintenance, and production. Retain the minimum necessary supply,
storage, and distribution functions and inventories required to support
the Maintenance Center Albany, GA, and to serve as a wholesale Forward
Distribution Point. Relocate all other wholesale storage and
distribution functions and associated inventories to the Warner Robins
Strategic Distribution Platform.
Realign Naval Air Station Jacksonville, FL, by consolidating the
supply, storage, and distribution functions and associated inventories
of the Defense Distribution Depot, Jacksonville, FL, with all other
supply, storage, and distribution functions and inventories that exist
at the Naval Aviation Depot, Jacksonville, FL, to support depot
operations, maintenance, and production. Retain the minimum necessary
supply, storage, and distribution functions and inventories required to
support the Naval Aviation Depot, Jacksonville, FL, and to serve as a
wholesale Forward Distribution Point. Relocate all other wholesale
storage and distribution functions and associated inventories to the
Warner Robins Strategic Distribution Platform.
Realign Anniston Army Depot, AL, by consolidating the supply, storage,
and distribution functions and associated inventories of the Defense
Distribution Depot Anniston, AL, with all other supply, storage, and
distribution functions and inventories that exist at the Anniston Army
Depot, AL, to support depot operations, maintenance, and production.
Retain the minimum necessary supply, storage, and distribution
functions and inventories required to support Anniston Army Depot, AL,
and to serve as a wholesale Forward Distribution Point. Relocate all
other wholesale storage and distribution functions and associated
inventories to the Warner Robins Strategic Distribution Platform.
Realign Corpus Christi Army Depot, TX, by consolidating the supply,
storage, and distribution functions and associated inventories of the
Defense Distribution Depot, Corpus Christi, TX, with all other supply,
storage, and distribution functions and inventories that exist at
Corpus Christi Army Depot, TX, to support depot operations,
maintenance, and production. Retain the minimum necessary supply,
storage, and distribution functions and inventories required to support
Corpus Christi Army Depot, TX, and to serve as a wholesale Forward
Distribution Point. Relocate all other wholesale storage and
distribution functions and associated inventories to the Defense
Distribution Depot Oklahoma City, hereby designated the Oklahoma City
Strategic Distribution Platform.
Realign Tinker AFB, OK, by consolidating the supply, storage, and
distribution functions and associated inventories supporting depot
operations, maintenance, and production at the Air Logistics Center,
Oklahoma City, OK, with the supply, storage, and distribution functions
and inventories at the Oklahoma City Strategic Distribution Platform.
Realign Hill AFB, UT, by consolidating the supply, storage, and
distribution functions and associated inventories of the Defense
Distribution Depot, Hill, UT, with all other supply, storage, and
distribution functions and inventories that exist at the Ogden Air
Logistics Center, UT, to support depot operations, maintenance, and
production. Retain the necessary supply, storage, and distribution
functions and inventories required to support the Ogden Air Logistics
Center, UT, and to serve as a wholesale Forward Distribution Point.
Relocate all other wholesale storage and distribution functions and
associated inventories to the Defense Distribution Depot, San Joaquin,
CA, hereby designated the San Joaquin Strategic Distribution Platform.
Realign Naval Station Bremerton, WA, by consolidating the supply,
storage, and distribution functions and associated inventories of the
Defense Distribution Depot, Puget Sound, WA, with all other supply,
storage and distribution functions and inventories that exist at Puget
Sound Naval Shipyard, WA, to support shipyard operations, maintenance,
and production. Retain the minimum necessary supply, storage, and
distribution functions and inventories required to support Puget Sound
Naval Shipyard, WA, and to serve as a wholesale Forward Distribution
Point. Relocate all other wholesale storage and distribution functions
and associated inventories to the San Joaquin Strategic Distribution
Platform.
Realign Naval Station, San Diego, CA, by consolidating the supply,
storage, and distribution functions and associated inventories of the
Defense Distribution Depot, San Diego, CA, with all other supply,
storage, and distribution functions and inventories that exist at Naval
Aviation Depot, North Island, CA, to support depot operations,
maintenance, and production. Retain the minimum necessary supply,
storage, and distribution functions and inventories required to support
Naval Aviation Depot, North Island, CA, and to serve as a wholesale
Forward Distribution Point. Relocate all other wholesale storage and
distribution functions and associated inventories to the San Joaquin
Strategic Distribution Platform.
Realign Marine Corps Logistics Base, Barstow, CA, by consolidating the
supply, storage, and distribution functions and associated inventories
of the Defense Distribution Depot Barstow, CA, with all other supply,
storage, and distribution functions and inventories that exist at the
Maintenance Center Barstow, CA, to support depot operations,
maintenance, and production. Retain the minimum necessary supply,
storage, and distribution functions and inventories at Defense
Distribution Depot Barstow, CA, that are required to support the
Maintenance Center Barstow, CA, and to serve as a wholesale Forward
Distribution Point. Relocate all other wholesale storage and
distribution functions and associated inventories to the San Joaquin
Strategic Distribution Platform.
Source: Extract from the 2005 Defense Base Closure and Realignment
Commission Report to the President, Volume 2, Appendix Q (Commission's
Final Recommendations).
[End of section]
Appendix II: Text of the BRAC Commission's Depot-Level Reparable
Procurement Management Consolidation Recommendation:
Realign Soldier Systems Center, Natick, MA, by relocating the Budget/
Funding, Contracting, Cataloging, Requisition Processing, Customer
Services, Item Management, Stock Control, Weapon System Secondary Item
Support, Requirements Determination, Integrated Materiel Management
Technical Support Inventory Control Point functions for Consumable
Items to Defense Supply Center Philadelphia, PA, and reestablishing
them as Defense Logistics Agency Inventory Control Point functions and
by disestablishing the procurement management and related support
functions for Depot Level Reparables and designating them as Defense
Supply Center Philadelphia PA, Inventory Control Point functions.
Realign Detroit Arsenal, MI, by relocating the Budget/Funding,
Contracting, Cataloging, Requisition Processing, Customer Services,
Item Management, Stock Control, Weapon System Secondary Item Support,
Requirements Determination, Integrated Materiel Management Technical
Support Inventory Control Point functions for Consumable Items to
Defense Supply Center Columbus, OH, and reestablishing them as Defense
Logistics Agency Inventory Control Point functions and by
disestablishing the procurement management and related support
functions for Depot Level Reparables and designating them as Defense
Supply Center Columbus, OH, Inventory Control Point functions.
Realign Rock Island Arsenal, IL, as follows: relocate the Budget/
Funding, Contracting, Cataloging, Requisition Processing, Customer
Services, Item Management, Stock Control, Weapon System Secondary Item
Support, Requirements Determination, Integrated Materiel Management
Technical Support Inventory Control Point functions for Consumable
Items to Defense Supply Center Columbus, OH, and reestablish them as
Defense Logistics Agency Inventory Control Point functions; relocate
the procurement management and related support functions for Depot
Level Reparables to Detroit Arsenal, MI, and designate them as Defense
Supply Center Columbus, OH, Inventory Control Point functions; and
relocate the remaining integrated materiel management, user, and
related support functions to Detroit Arsenal, MI.
Realign Ft. Huachuca, AZ, as follows: relocate the Budget/Funding,
Contracting, Cataloging, Requisition Processing, Customer Services,
Item Management, Stock Control, Weapon System Secondary Item Support,
Requirements Determination, Integrated Materiel Management Technical
Support Inventory Control Point functions for Consumable Items to
Defense Supply Center Columbus, OH, and designate them as Defense
Logistics Agency Inventory Control Point functions; relocate the
procurement management and related support functions for Depot Level
Reparables to Aberdeen proving Ground, MD, and designate them as
Defense Supply Center Columbus, OH, Inventory Control Point functions;
and relocate the remaining integrated materiel management, user, and
related support functions to Aberdeen Proving Ground, MD.
Realign Naval Support Activity Mechanicsburg, PA, as follows: relocate
the Budget/Funding, Contracting, Cataloging, Requisition Processing,
Customer Services, Item Management, Stock Control, Weapon System
Secondary Item Support, Requirements Determination, Integrated Materiel
Management Technical Support Inventory Control Point functions for
Consumable Items, except those Navy items associated with Nuclear
Propulsion Support, Level 1/Subsafe and Deep Submergence System Program
(DSSP) Management, Strategic Weapon Systems Management, Design
Unstable/Preproduction Test, Special Waivers, Major End Items and
Fabricated or Reclaimed items to Defense Supply Center Columbus, OH,
and reestablish them as Defense Logistics Agency Inventory Control
Point functions; disestablish the procurement management and related
support functions for Depot Level Reparables and designate them as
Defense Supply Center Columbus, OH, Inventory Control Point functions;
and relocate the oversight of Budget/Funding, Contracting, Cataloging,
Requisition Processing, Customer Services, Item Management, Stock
Control, Weapon System Secondary Item Support, Requirements
Determination, Integrated Materiel Management Technical Support
Inventory Control Point functions for Consumable Items and the
oversight of procurement management and related support functions for
Depot Level Reparables to the Defense Logistics Agency, Fort Belvoir,
VA.
Realign Marine Corps Base, Albany, GA, as follows: relocate the Budget/
Funding, Contracting, Cataloging, Requisition Processing, Customer
Services, Item Management, Stock Control, Weapon System Secondary Item
Support, Requirements Determination, Integrated Materiel Management
Technical Support Inventory Control Point functions for any residual
Consumable Items to Defense Supply Center Columbus, OH, and reestablish
them as Defense Logistics Agency Inventory Control Point functions;
disestablish the procurement management and related support functions
for Depot Level Reparables and designate them as Defense Supply Center
Columbus, OH, Inventory Control Point functions; and relocate the
oversight of Budget/Funding, Contracting, Cataloging, Requisition
Processing, Customer Services, Item Management, Stock Control, Weapon
System Secondary Item Support, Requirements Determination, Integrated
Materiel Management Technical Support Inventory Control Point functions
for Consumable Items and the oversight of procurement management and
related support functions for Depot Level Reparables to the Defense
Logistics Agency, Fort Belvoir, VA.
Realign Naval Support Activity Philadelphia, PA, Tinker Air Force Base,
OK, Hill Air Force Base, UT, and Robins Air Force Base, GA, by
relocating the Budget/Funding, Contracting, Cataloging, Requisition
Processing, Customer Services, Item Management, Stock Control, Weapon
System Secondary Item Support, Requirements Determination, Integrated
Materiel Management Technical Support Inventory Control Point functions
for Consumable Items, except those Navy items associated with Design
Unstable/Preproduction Test, Special Waivers, and Major End Items to
Defense Supply Center Richmond, VA, and reestablishing them as Defense
Logistics Agency Inventory Control Point functions, and by
disestablishing the procurement management and related support
functions for Depot Level Reparables and designating them as Defense
Supply Center Richmond, VA, Inventory Control Point functions.
Realign Redstone Arsenal, AL, as follows: relocate the Budget/Funding,
Contracting, Cataloging, Requisition Processing, Customer Services,
Item Management, Stock Control, Weapon System Secondary Item Support,
Requirements Determination, Integrated Materiel Management Technical
Support Inventory Control Point functions for Aviation Consumable Items
to Defense Supply Center Richmond, VA, and reestablish them as Defense
Logistics Agency Aviation Inventory Control Point functions;
disestablish the procurement management and related support functions
for Aviation Depot Level Reparables and designate them as Defense
Supply Center Richmond, VA, Aviation Inventory Control Point functions;
relocate the Budget/Funding, Contracting, Cataloging, Requisition
Processing, Customer Services, Item Management, Stock Control, Weapon
System Secondary Item Support, Requirements Determination, Integrated
Materiel Management Technical Support Inventory Control Point functions
for Missile Consumable Items to Defense Supply Center Columbus, OH;
reestablish them as Defense Logistics Agency Missile Inventory Control
Point functions; disestablish the procurement management and related
support functions for Missile Depot Level Reparables and designate them
as Defense Supply Center Columbus, OH, Missile Inventory Control Point
functions; and realign a portion of the remaining integrated materiel
management, user, and related support functions necessary to oversee
the Inventory Control Point activities at Aberdeen Proving Ground, MD,
Detroit Arsenal, MI, Soldier System Center, Natick, MA, and Redstone
Arsenal, AL, to Headquarters Army Materiel Command (AMC).
Realign Wright-Patterson Air Force Base, OH, by relocating the
oversight of Budget/Funding, Contracting, Cataloging, Requisition
Processing, Customer Services, Item Management, Stock Control, Weapon
System Secondary Item Support, Requirements Determination, Integrated
Materiel Management Technical Support Inventory Control Point functions
for Consumable Items and the oversight of procurement management and
related support functions for Depot Level Reparables to the Defense
Logistics Agency, Fort Belvoir, VA.
Realign Fort Belvoir, VA, by assigning the oversight of Budget/Funding,
Contracting, Cataloging, Requisition Processing, Customer Services,
Item Management, Stock Control, Weapon System Secondary Item Support,
Requirements Determination, Integrated Materiel Management Technical
Support Inventory Control Point functions for Consumable Items and the
oversight of procurement management and related support functions for
Depot Level Reparables to the Defense Logistics Agency, Fort Belvoir,
VA.
Source: Extract from the 2005 Defense Base Closure and Realignment
Commission Report to the President, Volume 2, Appendix Q (Commission's
Final Recommendations).
[End of section]
Appendix III: Scope and Methodology:
We performed our work and obtained information from the Office of the
Under Secretary of Defense (Acquisition, Technology, and Logistics),
Arlington, Virginia; Office of the Deputy Under Secretary of Defense
(Installations and Environment), Arlington, Virginia; the Office of the
Under Secretary of Defense Comptroller, Arlington, Virginia; Defense
Logistics Agency (DLA) headquarters, Fort Belvoir, Virginia; DLA's
Defense Distribution Center, Susquehanna, Pennsylvania; Air Force
Materiel Command, Wright-Patterson Air Force Base, Ohio; Naval Sea
Systems Command, Washington Navy Yard, Washington, D.C.; United States
Army Materiel Command, Fort Belvoir, Virginia; Corpus Christi Army
Depot, Corpus Christi, Texas; Norfolk Naval Shipyard, Portsmouth,
Virginia; Naval Supply Systems Command, Mechanicsburg, Pennsylvania;
and Warner Robins Air Logistics Center, Warner Robins, Georgia. We
further relied on our related work and resulting report issued in
October 2007 regarding key specific implementation actions associated
with the implementation of the supply, storage, and distribution (SS&D)
recommendation.[Footnote 31] Additional locations visited during this
prior review included Anniston Army Depot, Anniston, Alabama; Tobyhanna
Army Depot, Tobyhanna, Pennsylvania; the Naval Aviation Depot, Cherry
Point, North Carolina; and the Marine Corps Maintenance Center Albany,
Albany, Georgia.
To determine the extent to which DLA's estimated costs and savings for
the two DLA-managed recommendations have changed from those presented
in the 2005 base realignment and closure (BRAC) Commission's September
2005 report, we examined supporting documents used to generate the
Commission's estimates and DLA's business plans for these two
recommendations. The Commission's estimates represent the closest
estimates that were available at the time the BRAC recommendations were
finalized. In making our comparisons, we used DLA's September 28, 2007,
draft business plan, which is awaiting approval from the Office of the
Secretary of Defense, for the SS&D recommendation and its updated
September 28, 2007, business plan for the depot-level reparable (DLR)
recommendation. The September 2007 business plans were the most current
plans available at the time of our review and provide for more current
estimates and associated variances with BRAC Commission estimates than
those provided in our December 2007 report on overall BRAC costs and
savings.[Footnote 32] In that report we used fiscal year 2008
Department of Defense (DOD) budget data for comparative purposes. We
determined the reasonableness of the estimates presented in the
business plans by reviewing and analyzing source data and methodology
used to generate estimates of costs and savings. We discussed the
reasons for the variances with DLA, service, and contractor officials.
Based on the revised estimates as presented in the business plans, we
also recalculated the expected 20-year savings--also known as the 20-
year net present value--for these recommendations, using the same
methodology used by the BRAC Commission in its calculation of the
estimate. We also generally reported expected cost and savings in
current dollars and not constant dollars except where noted. In
addition, we calculated how many years it would take for the expected
BRAC savings to recoup the expected initial investment costs to
implement the recommendations, comparing the fiscal years, or break-
even points, when cumulative savings would exceed cumulative costs. We
did this to be consistent with the way DOD had reported its break-even
points for past rounds, which is a methodology we also replicated in
our prior reports on BRAC implementation.
To assess the reliability of the data and the validity of underlying
assumptions used to generate estimates of costs and savings, we
reviewed pertinent Under Secretary of Defense (Acquisition, Technology,
and Logistics), Supply and Storage Joint Cross-Service Group, and DLA
guidance for reporting data and interviewed officials at the locations
named above as well as BRAC representatives from each of the military
services knowledgeable about the data and the assumptions underlying
estimated costs and savings. Based on this, we believe that the data
used were sufficiently reliable for the purposes of this report. It
should be noted that the business plans are considered "living"
documents and the data presented therein represent a point in time as
plans are subject to change as implementation proceeds.
To determine the progress made in implementing these recommendations
and the challenges DLA faces, we analyzed pertinent documents and
reports and interviewed officials from the Office of the Under
Secretary of Defense (Acquisition, Technology, and Logistics); DLA
headquarters and its Defense Distribution Center in Susquehanna,
Pennsylvania; and Army, Navy, Air Force, and Marine Corps officials
responsible for developing the planning documents and implementing the
recommendations. We also discussed challenges with service officials at
and observed the supply and support operations at Corpus Christi Army
Depot, Corpus Christi, Texas; Norfolk Naval Shipyard, Portsmouth,
Virginia; and Warner Robins Air Logistics Center, Warner Robins,
Georgia. In addition to these sites, we also visited Anniston Army
Depot, Anniston Alabama; Tobyhanna Army Depot, Tobyhanna, Pennsylvania;
the Naval Aviation Depot, Cherry Point, North Carolina; and the Marine
Corps Maintenance Center Albany, Albany, Georgia to observe supply and
support operations and discuss their concerns regarding implementation
issues. We further discussed with DLA officials ongoing or planned
actions to mitigate the risks associated with these challenges.
We conducted this performance audit from January 2006 through December
2007 in accordance with generally accepted government auditing
standards. Those standards require that we plan and perform the audit
to obtain sufficient, appropriate evidence to provide a reasonable
basis for our findings and conclusions based on our audit objectives.
We believe that the evidence obtained provides a reasonable basis for
our findings and conclusions based on our audit objectives.
[End of section]
Appendix IV: Comments from the Department of Defense:
Deputy Under Secretary Of Defense For Logistics And Materiel Readiness:
3500 Defense Pentagon:
Washington, DC 20301-3500:
February 26, 2008:
Mr. Brian Lapore:
Director, Defense Capabilities and Management:
U. S. Government Accountability Office:
441 G Street, N.W.
Washington, DC 20548:
Dear Mr. Lapore:
This is the Department of Defense (DOD) response to the GAO draft
report, "Military Base Realignments And Closures: Higher Costs and
Lower Savings Projected for Implementing Two Key Supply-Related BRAC
Recommendations," dated 18 January, 2008 (GAO Code 350791/GAO-08-315).
The DoD non-concurs with the draft report's recommendation that the
Secretary of Defense direct the Director of the Defense Logistics
Agency to revise its business plans to exclude all expected savings
that are not the direct result of BRAC actions. Your report cites the
$172 million in potential savings for implementing the supply, storage,
and distribution (SS&D) recommendation and the $71 million in potential
savings for implementing the depot level reparable (DLR) recommendation
as pre-BRAC actions associated with inventory reduction initiatives
already planned by the Services that would have occurred regardless of
BRAC. The Department's views the $243M in potential savings, while not
directly the result of BRAC actions, were enabled by BRAC actions and
therefore should be attributable to the recommendation. Additional
information to support our position is provided in the attachment. The
Department concurs with the two other recommendations and our comments
are attached.
The Department appreciates the opportunity to comment on the draft
report. Technical comments were provided separately.
Sincerely,
Signed by:
Jack Bell:
Enclosure:
As stated:
GAO Draft Report – Dated January 18, 2008:
GAO Code 350791/GAO-08-315:
"Military Base Realignments And Closures: Higher Costs and Lower
Savings Projected for Implementing Two Key Supply-Related BRAC
Recommendations"
Department Of Defense Comments To The Recommendations:
Recommendation 1: The GAO recommends that the Secretary of Defense
direct the Director of the Defense Logistics Agency to revise its
business plans to exclude all expected savings that are not the direct
result of BRAC actions. Such revisions should exclude, for example, the
$172 million in potential savings for implementing the supply, storage,
and distribution (SS&D) recommendation and the $71 million in potential
savings for implementing the depot level reparable (DLR) recommendation
that resulted from pre-BRAC actions associated with inventory reduction
initiatives already planned by the Services that would have occurred
regardless of BRAC.
DOD Response: Non-concur. While not directly the result of Base
Realignment and Closures (BRAC) actions, the $243M in potential savings
were enabled by BRAC actions Enabled savings are savings initiatives
that were enhanced in some way by the BRAC implementation actions (e.g.
increased scope, more aggressively pursued or moved in new directions).
Defense Logistics Agency (DLA) attributes $196M to holding cost
avoidance due to Army and Marine Corp condemnations, Air Force (AF)
implementation of Customer Oriented Leveling Technique (COLT) and
Strategic Materiel Sourcing (SMS); additional savings of $23.6 M
occurred due to AF COLT and SMS inventory reduction initiatives; $23.8M
occurred due to changes in SMS pricing. The basis of our non-concur is
centered on DLA and the Services' actions taken to implement two
specific BRAC recommendations, 177 and 176.
In recommendation 177, DLA pledged to evacuate more than 15M gross
square feet of warehouse space. As a result of this pledge, DLA asked
the Services to consider eliminating dormant stock (i.e. stock with no
demands for more than 2 years). The holding cost avoidance savings
claimed were from stock voluntarily eliminated as a result of this
review.
COLT is a program designed to minimize stock held in support of AF
depot maintenance activities. COLT achieves the same results intended
by recommendation 177 which calls for DLA to collapse the wholesale and
retail stock levels when it assume ownership of the depot retail supply
accounts. As a result of this initiative the AF was exempted from
participation in DLA's retail supply inventory reduction program.
Recommendation 176 consolidates procurement authority into one DOD
Component (DLA) enabling the department to increase the rate that items
are added to long term indefinite-delivery indefinite-quantity (IDIQ)
contracts. SMS is a DLA program that measures the savings accrued by
DLA when it adds new items to long term IDIQ contracts. Savings come
from reduced stock levels resulting from shorter lead-times and moving
items from stocked to direct vendor delivery status. Implementation of
176 enhances the savings generated by the SMS program
Recommendation 2: The GAO recommends that the Secretary of Defense
direct the Director of the Defense Logistics Agency to implement
methodologies for periodically monitoring and updating net savings for
the supply, storage, and distribution (SS&D) and depot level reparable
(DLR) recommendations throughout the implementation period. Such
methodologies, at a minimum, should include:
* clear metrics for measuring the magnitude of actual costs and
savings;
* a comparison of the actual costs and savings to the prior estimates
to coincide with the required semi-annual business plan updates, and;
* explanations for actual cost and savings variances from estimates
presented in the business plans.
DOD Response: Concur
Recommendation 3: The GAO recommends that the Secretary of Defense
direct the Secretaries of the Army, Navy, and Air Force, the Commandant
of the Marine Corps, and the Director of the Defense Logistics Agency
(DLA) to ensure that necessary funding to meet implementation
milestones is reflected in all respective Service and DLA budget
submission for the remainder of the implementation period ending in
fiscal year 2011.
DOD Response: Concur
[End of section]
Appendix V: GAO Contact and Staff Acknowledgments:
GAO Contact:
Brian J. Lepore (202) 512-4523 or leporeb@gao.gov:
Acknowledgments:
In addition to the individual named above, Barry Holman, Director
(retired); James R. Reifsnyder, Assistant Director; John R. Beauchamp,
Renee S. Brown, John C. Bumgarner, Brian P. Mateja, Julia Matta,
Charles W. Perdue, Dudley C. Roache, Jr. (retired), Virginia M.
Saavedra (retired), and John Wren made key contributions to this
report.
[End of section]
Related GAO Products:
Military Base Realignments and Closures: Estimated Costs Have Increased
and Estimated Savings Have Decreased. GAO-08-341T. Washington, D.C.:
December 12, 2007.
Military Base Realignments and Closures: Cost Estimates Have Increased
and Are Likely to Continue to Evolve. GAO-08-159. Washington, D.C.:
December 11, 2007.
Military Base Realignments and Closures: Impact of Terminating,
Relocating, or Outsourcing the Services of the Armed Forces Institute
of Pathology. GAO-08-20. Washington, D.C.: November 9, 2007.
Military Base Realignments and Closures: Transfer of Supply, Storage,
and Distribution Functions from Military Services to Defense Logistics
Agency. GAO-08-121R. Washington, D.C.: October 26, 2007.
Defense Infrastructure: Challenges Increase Risks for Providing Timely
Infrastructure Support for Army Installations Expecting Substantial
Personnel Growth. GAO-07-1007. Washington, D.C.: September 13, 2007.
Military Base Realignments and Closures: Plan Needed to Monitor
Challenges for Completing More Than 100 Armed Forces Reserve Centers.
GAO-07-1040. Washington, D.C.: September 13, 2007.
Military Base Realignments and Closures: Observations Related to the
2005 Round. GAO-07-1203R. Washington, D.C.: September 6, 2007.
Military Base Closures: Projected Savings from Fleet Readiness Centers
Likely Overstated and Actions Needed to Track Actual Savings and
Overcome Certain Challenges. GAO-07-304. Washington, D.C.: June 29,
2007.
Military Base Closures: Management Strategy Needed to Mitigate
Challenges and Improve Communication to Help Ensure Timely
Implementation of Air National Guard Recommendations. GAO-07-641.
Washington, D.C.: May 16, 2007.
Military Base Closures: Opportunities Exist to Improve Environmental
Cleanup Cost Reporting and to Expedite Transfer of Unneeded Property.
GAO-07-166. Washington, D.C.: January 30, 2007.
Military Bases: Observations on DOD's 2005 Base Realignment and Closure
Selection Process and Recommendations. GAO-05-905. Washington, D.C.:
July 18, 2005.
Military Bases: Analysis of DOD's 2005 Selection Process and
Recommendations for Base Closures and Realignments. GAO-05-785.
Washington, D.C.: July 1, 2005.
Military Base Closures: Observations on Prior and Current BRAC Rounds.
GAO-05-614. Washington, D.C.: May 3, 2005.
Military Base Closures: Updated Status of Prior Base Realignments and
Closures. GAO-05-138. Washington, D.C.: January 13, 2005.
Military Base Closures: Assessment of DOD's 2004 Report on the Need for
a Base Realignment and Closure Round. GAO-04-760. Washington, D.C.: May
17, 2004.
Military Base Closures: Observations on Preparations for the Upcoming
Base Realignment and Closure Round. GAO-04-558T. Washington, D.C.:
March 25, 2004.
[End of section]
Footnotes:
[1] Business process engineering can be generally defined as an
approach for redesigning the way work is done to better support an
organization's mission and reduce costs. In this context, the BRAC
recommendations discussed in this report are intended to transform
existing distribution and procurement processes to more efficiently
support the warfighter.
[2] DOD began the transition of management of consumable items from the
services to DLA in the early 1990s. Under this BRAC 2005
recommendation, the services and DLA are to complete the transfer of
all remaining eligible consumable items to DLA. Consumable items are
either not repairable or not economically repairable.
[3] [3] These particular figures are presented in fiscal year 2005
constant dollars (i.e., excludes projected inflation) as reported by
the BRAC Commission. DLA subsequently converted the Commission's
estimates to then-year dollars in its business plans and also expressed
its estimates in then-year dollars (i.e., includes projected
inflation). The implementation period extends nearly 6 years from when
the BRAC recommendations became effective in November 2005 to September
15, 2011.
[4] GAO, Military Bases: Analysis of DOD's 2005 Selection Process and
Recommendations for Base Closures and Realignments, GAO-05-785
(Washington, D.C.: July 1, 2005).
[5] GAO, Military Base Realignments and Closures: Cost Estimates Have
Increased and Are Likely to Continue to Evolve, GAO-08-159 (Washington,
D.C.: Dec. 11, 2007).
[6] GAO, Military Base Realignments and Closures: Transfer of Supply,
Storage, and Distribution Functions from Military Services to Defense
Logistics Agency, GAO-08-121R (Washington, D.C.: Oct. 26, 2007).
[7] According to DOD, "enabled" savings are those generated from non-
BRAC initiatives that were enhanced (e.g., increased in scope, more
aggressively pursued, or moved in new directions) in some way by the
implementation of the BRAC recommendations.
[8] Twenty-year savings, also known as 20-year net present value in the
BRAC Commission's report, is a financial calculation that accounts for
the time value of money by determining the present value of future
savings minus up-front investment costs over a specified period of
time. Determining net present value is important because it illustrates
both the up-front investment costs and long-term savings in a single
amount. In the context of BRAC implementation, net present value is
calculated for a 20-year period from 2006 through 2025.
[9] DOD and the BRAC Commission used an estimation model during the
decision-making process to assess various proposed recommendations. The
model was not intended to produce budget-quality estimates and thus can
not be assumed to represent the actual costs incurred or the savings
achieved by implementing the recommendations.
[10] The four prior rounds took place in 1988, 1991, 1993, and 1995.
[11] Pub. L. No. 107-107, Title XXX (2001).
[12] Pub. L. No. 101-510, Title XXIX (1990); 10 U.S.C. § 2687 note.
[13] GAO-08-121R.
[14] Performance-based logistics is defined as the purchase of weapon
system sustainment as part of an integrated weapon system package based
on output measures, such as weapon system availability, rather than
input measures, such as parts and technical service.
[15] In the context of BRAC, net present value savings take into
account the time value of money in calculating the value of future
costs and savings. For fiscal year 2005, DOD used a 2.8 percent
discount rate to calculate net present value.
[16] Payback period is a metric used by DOD and the BRAC Commission in
evaluating individual BRAC recommendations and represents the time
required to recoup up-front investment costs to implement BRAC
recommendations. Thus, payback or the break-even point is when
cumulative savings exceed cumulative costs.
[17] Under the A-76 process, otherwise known as competitive sourcing,
the military services and other defense components conduct a public/
private competition for a commercial activity currently performed by
government personnel to determine whether it would be cost-effective to
contract with the private sector for that activity's performance.
[18] GAO-08-121R.
[19] The September 2007 draft SS&D business plan states that inventory
savings associated with four service and DLA inventory reduction
initiatives were being substituted for the original inventory savings.
According to DLA officials, this decision was not documented. These
four initiatives were provided by the Army, Air Force, Marine Corps,
and DLA. They were designed to create efficiencies through reducing and
phasing out obsolete inventory and improving procurement practices.
[20] DOD Supply Chain Materiel Management Regulation, DOD 4140.1-R,
Section C2.8 Materiel Retention (May 23, 2003).
[21] This construction includes an administrative building, a parking
garage, a weapons maintenance and operations center, and a weapon
system support and training center.
[22] Procurement or acquisition lead times are the length of time
between the initiation of a procurement action and the receipt of items
into the supply system.
[23] GAO-05-785.
[24] We have designated DOD's financial management as a high-risk area
since 1995. GAO, High-Risk Series: An Update, GAO-07-310 (January
2007).
[25] DLA plans to establish several integrated process teams to work
through problems and concerns and, where possible, identify solutions
during implementation of the SS&D and DLR BRAC recommendations. The
teams focus on issues such as human performance, information
technology, facilities and equipment, financial management, change
management, supply and distribution, and metrics. These teams have been
established at all four services for the DLR recommendation. As of
December 2007, these teams have been established with the Air Force and
Navy for implementation of the SS&D recommendation, and DLA plans to
establish similar teams for the Marine Corps and Army as they begin
implementation of the SS&D recommendation.
[26] Program Budget Decision 717 (Dec. 20, 2005).
[27] GAO-08-121R.
[28] Performance-based agreements are defined as the negotiated
agreements between the major stakeholders that formally document the
performance and support expectations and resources to achieve the
desired outcome.
[29] DOD Supply Chain Materiel Management Regulation, DOD 4140.1-R,
Section C2.8 Materiel Retention (May 23, 2003).
[30] Of the $243 million, almost $190 million in savings was associated
with several military services' initiatives that implemented a DOD
supply regulation that is unrelated to BRAC to identify and dispose of
obsolete or unneeded inventory. Another $53 million in savings during
the BRAC implementation period was associated with an Air Force
inventory reduction initiative that was initiated prior to November 9,
2005, when the BRAC recommendations became effective.
[31] GAO-08-121R.
[32] GAO-08-159.
[End of section]
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