Detailed Information on the
Marine Corps Base Operations & Support Assessment

Develop, with the Office of the Secretary of Defense, levels of performance for all base support services that are common across all military services.

Develop, with the Office of the Secretary of Defense, cost models and performance metrics for all base support services that are common across al military services.

Develop, with the Office of the Secretary of Defense, definitions for all base support services that are common across all military services.

Measure: Million British Thermal Units consumed per thousand square feet.

Explanation:This measures the amount of energy used per thousand square feet of Marine Corps facilities. Because the cost of energy is determined by market forces and can fluctuate considerably, the amount of energy use is a better indicator of efficiency than cost.

Is the program purpose clear?

Explanation: The United States Marine Corps Base Operations and Support Program provides support infrastructure that enables Marine Corps installations to launch and recover Marine Air Ground Task Forces and support personnel and families assigned to an installation. The program consists of three core areas: Training and Operations Support, Community Support, and Command support. Training and Operations Support provides services that directly contribute to the availability to conduct training exercises necessary to maintain military readiness. Community Support consists of services provided to military communities that contribute to quality of life and military morale. Command support consists of services required by Marine Corps leadership to carry out command responsibilities over the Marine Corps organization.

Evidence: Title 10 U.S.C. 5063 directs the Marine Corps to provide the infrastructure necessary to support its force structure.

Does the program address a specific and existing problem, interest, or need?

Explanation: The Marine Corps could not function without an adequate support infrastructure for their installations. The Base Operating Support (BOS) program provides the backbone that is necessary for the Marine Corps to accomplish its core missions. BOS includes the operation and provision of utilities to Marine Corps installations, maintenance and operation of its motor fleet, and the provision of supplies and services necessary to keep Marine Corps installations operational and to ensure an adequate quality of life for our Marines.

Evidence: Marine Corps leadership uses military judgment to determine the requirements of Marine Corps installations. Without an adequate support infrastructure, the Marine Corps would not be able to launch and recover Marine Air Ground Task Forces as required to ensure our national security.

Is the program designed so that it is not redundant or duplicative of any other Federal, state, local or private effort?

Explanation: The United States Marine Corps is solely responsible for managing base operations support activities at its installations. The Marine Corps work closely with specific Department of Navy Commands??such as the Navy Facilities and Engineering Command and Navy Supply Services Command??to ensure that it provides the complete range of support to its installations. The private sector provides many services that are similar to services provided in this program??such as utilities and information technology. But, the Department of Defense has a bona fide need for these services at its facilities. They cannot operate, for example, without electricity. The Marine Corps obtains these services from the private sector when it is both possible and most cost-effective to so.

Evidence: No other programs provide base support services to Marine Corps installations.

Is the program design free of major flaws that would limit the program's effectiveness or efficiency?

Explanation: The Marine Corps manages BOS by baselining this program to prior year requirements during annual program development and requiring justification for changes to the baseline. This minimizes BOS program funding to that which is absolutely necessary to meet mission requirements. Adjustments for fact-of-life requirements are made in the year of execution, as necessary. There is a clear chain-of-command from the Deputy Commandant of the Marine Corps, Installations and Logistics (DC I&L) through regional Marine Corps Installation commanders, to the individual installation commanders. Currently, efforts are underway to further enhance the effectiveness and efficiency of BOS through participation in OSD's Common Delivery of Installation Services initiative.

Evidence: 2006 United States Marine Corps Concepts & Programs; USMC Installations Campaign Plan; USMC Core Business Model; CMC Programming Guidance; DoD Commander in Chief Installation Excellence Award Program; DoN Energy Conservation Award Program.

Is the program design effectively targeted so that resources will address the program's purpose directly and will reach intended beneficiaries?

Explanation: The Marine Corps does not have long-term, outcome-based metrics for its Base Operations Support Program. Therefore, it is not possible to determine whether the Marine Corps is providing its base support services at the appropriate level. And, as a consequence, it is not possible to determine whether the Marine Corps has effectively targeted resources to the program.

Evidence: The GAO has reported that the Marine Corps, like the other military services, does not have a mature analytical process to determine the appropriate amount of resources required for its base support services.

Does the program have a limited number of specific long-term performance measures that focus on outcomes and meaningfully reflect the purpose of the program?

Explanation: The Marine Corps does not have specific long-term performance measures that meaningfully reflect the purpose of its base support services. The Marine Corps is currently working with the Office of the Secretary of Defense to develop common measures and definitions that will allow it to evaluate the desired outcomes of base support services. Nonetheless, the Marine Corps do have long-term goals for the program. These are to provide conintued and uninterrupted access to training areas; adequate barracks space for junior enlisted Marines; rapid delivery of material whenever required; and adequate facility assets to meet all mission requirements.

Evidence: The Marine Corps performance metrics measure short-term outputs rather than long-term outcomes. The GAO has reported that in the absence of a mature analytic process for determining requirements for base support services it is impossible to determine whether they are provided at the appropriate level.

Does the program have ambitious targets and timeframes for its long-term measures?

Explanation: In the absence of long-term performance metrics that measure outcomes, the Marine Corps cannot define an appropriate end-state for its base support services.

Evidence: The Marine Corps does not have outcome-based performance metrics. Therefore, it is not possible to have ambitious targets and timeframes for the base operations support program.

Does the program have a limited number of specific annual performance measures that can demonstrate progress toward achieving the program's long-term goals?

Explanation: The Marine Corps uses a core business model to track and report annual outputs and expenditures against its plans for each of the 37 functions comprised in its base support services. These output metrics measure progress toward numerous short-term goals??such as achieving energy and water conservation targets and environmental compliance requirements--that contribute toward the long-term goals of the program. They are based on military judgments of what is needed to maintain uninterrupted access to training ranges and the necessary infrastructure to field Marine forces. Marine Corps installations require basic services such as utilities and motor pools in order to function, which is a long-term goal of the program. But, in the absence of long-term outcome-based performance metrics, senior Defense Department leadership must make subjective judgments about what ranges of outputs constitute the appropriate level of service.

Evidence: The Marine Corps collects its performance data in the Defense Utilities and Energy Report, Environmental Compliance Reports, and its FAST Reporting system.

Does the program have baselines and ambitious targets for its annual measures?

Explanation: The Marine Corps have established baselines and targets for the majority of its annual performance metrics. Targets are based on historical data and estimates of what is required to support the current force structure and anticipated missions. But, in the absence of long-term outcome-based performance metrics it is not possible to determine whether base support services have been provided at an appropriate level and whether annual targets are ambitious.

Evidence: The GAO has noted that the Marine Corps have relied heavily on past expenditures as the basis for stating future base support service requirements, but that they do not necessarily know whether services were provided at the appropriate level. Therefore, it is not possible to determine whether the Marine Corps' annual targets are ambitious.

Do all partners (including grantees, sub-grantees, contractors, cost-sharing partners, and other government partners) commit to and work toward the annual and/or long-term goals of the program?

Explanation: All installation management proponents, support organizations, and personnel commit to and work toward annual and long-term goals that best fill Marine Corps needs within existing resources. Their use of extensive benefit/cost analyses during programming, prioritization of activities during execution, and continued emphasis of professional judgment, supports these goals. The Commandant signed the Marine Corps Business Enterprise Strategic Plan in November 2004 which identifies all relevant parties and documents strategic near-term goals. The Marine Corps Installation Regional Commanders ensure compliance towards the annual and long-term goals of the BOS program.

Evidence: MC Business Enterprise Strategic Plan, Regional Commander Implementing Orders.

Are independent evaluations of sufficient scope and quality conducted on a regular basis or as needed to support program improvements and evaluate effectiveness and relevance to the problem, interest, or need?

Explanation: The Marine Corps Inspector General regularly evaluates installation management organizations. And the Marine Corps also conducts regular environmental compliance evaluations with other governmental partners, such as the Environmental Protection Agency.

Evidence: Evaluations of Marine Corps base support service programs use tools from the private sector, such as Six Sigma and LEAN, to determine whether programs are performing efficiently and provide insight into potential improvements.

Are Budget requests explicitly tied to accomplishment of the annual and long-term performance goals, and are the resource needs presented in a complete and transparent manner in the program's budget?

Explanation: In the absence of long-term outcome-based performance metrics, it is not possible to assess the impact of funding, policy, or legislative decisions on expected performance. Therefore, Marine Corps leadership does not have a mature analytic process to determine the optimal performance/resource mix of base support services.

Evidence: The GAO has noted that the lack of a mature analytic process for evaluating base support services prevents the Marine Corps from determining the appropriate resource needs of the program as it relates to the Marines' overall defense mission.

Has the program taken meaningful steps to correct its strategic planning deficiencies?

Explanation: The Marine Corps is currently cooperating with the Office of the Secretary of Defense to develop a Common Delivery of Installations Services (CDIS) model that will standardize definitions and quantify levels of appropriate support for base services for all of the military services' installations. The CDIS will focus on common output level standards that assess the level of risk to program performance associated with various outputs. Thus, it will provide an appropriate analytical framework for military leadership to assess the amount of risk to installation readiness associated with various performance/resource mixes.

Evidence: The Office of the Secretary of Defense's initiative to standardize base support services across all military services resulted out of issues discovered through regular review of programs and through the use of balanced scorecards.

Does the agency regularly collect timely and credible performance information, including information from key program partners, and use it to manage the program and improve performance?

Explanation: At each of its installations, the Marine Corps have Business Performance Offices that are responsible for the ongoing collection of performance information for each of the 37 functions that comprise the Base Operations Support program. The Marine Corps Headquarters collects this data semi-annually and compares performance between individual installations. Headquarters Marine Corps brings installations that are not performing adequately to the attention of the Base or Regional Commander.

Evidence: The Marine Corps uses an Activity Based Information System to track performance data Marine Corps-wide.

Are Federal managers and program partners (including grantees, sub-grantees, contractors, cost-sharing partners, and other government partners) held accountable for cost, schedule and performance results?

Explanation: Program managers, Regional Commanders, and Base Commanders are responsible for ensuring that units under their command use resources properly to achieve their program objectives. Contractors are held accountable through the use of performance-based contracting.

Evidence: Program performance is a critical component of the personnel performance evaluations for the program managers, Regional Commanders, and Base Commanders. The Marine Corps uses performance-based contracting to ensure that contractors are held accountable for performance results. An example of contracted performance accountability is the Marine Corps Quality Assurance Plans for its Regional Garrison Food Service contract.

Are funds (Federal and partners') obligated in a timely manner, spent for the intended purpose and accurately reported?

Explanation: The Marine Corps conducts routine audits by certified public accountants as well as GAO, the Defense Department Inspector General, and the Naval Audit Service to track and report the timeliness and appropriateness of obligations and expenditures. These audits use Defense Department standards as the benchmark for juging the adequacy of oversight.

Evidence: A monthly execution report be activity group is generated for the Office of the Secretary of Defense. This report tracks how funds are spent and at what rate.

Does the program have procedures (e.g. competitive sourcing/cost comparisons, IT improvements, appropriate incentives) to measure and achieve efficiencies and cost effectiveness in program execution?

Explanation: The Marine Corps uses a variety of tools to measure and improve program efficiency. The Marines use activity based costing to determine appropriate levels of service, A-76 studies to determine when outsourcing is cost effective, and private sector business practices??such as LEAN and Six Sigma??to improve program quality and efficiency. In 2003, the Marine Corps established its Business Enterprise Office to better identify and promote improvements in its business practices.

Evidence: The Marine Corps have conducted 35 successful competitive sourcing competitions since 1999 that have resulted in around $113 million in savings to taxpayers.

Does the program collaborate and coordinate effectively with related programs?

Explanation: A lack of common definitions and standards for base operating support across the entire Department of Defense prohibits the Marine Corps from effective coordination and collaboration with other military services. This lack of effective collaboration is particularly pronounced when the Marine Corps occupies installations with other services.

Evidence: The lack of common Department of Defense definitions for Base Operating Support programs has been well-documented by the GAO. This creates confusion when multiple services operated on the same installation, and can result in the provision of inadequate services.

Does the program use strong financial management practices?

Explanation: The Defense Department's financial management weaknesses are well-documented. While DoD continues to make efforts to improve it, the Department has yet to obtain an unqualified audit opinion. The Marine Corps does not have audit reports demonstrating that its base operations support program is free from internal weaknesses. Nonetheless, the Marine Corps is in the forefront of the Department of Defense, as it anticipates achieving a clean audit statement in 2007.

Evidence: Numerous audits document the Department's financial management weaknesses. Because of the magnitude of its problems, DoD is unlikely to obtain an unqualified audit for some time. GAO has specifically identified support infrastructure as one of the Department's weaknesses.

Has the program taken meaningful steps to address its management deficiencies?

Explanation: Regular reporting of cost, schedule, and performance goals by program managers to Marine Corps Headquarters allows the Marines to identify and address management deficiencies. In addition the Marine Corps participates in Defense Department-Wide assessments of base support services. This has led to Marine Corps participation in the development of a Department-wide system to develop common standards for the measurement of base support outcomes.

Evidence: The Marine Corps' Management Control Program requires annual certification of each program within the base operating services. This certification identifies weaknesses and deficiencies in the program as well as progress in implementing previously identified corrective actions.

Has the program demonstrated adequate progress in achieving its long-term performance goals?

Explanation: The Marine Corps does not have long-term outcome-based based metrics for its base support services. At this time, however, the Marine Corps is participating in the Office of the Secretary of Defense's initiative to establish a common base service support model that will incorporate Common Output Level Standards that will measure outcomes for base operating support functional activities and allow leadership to better determine the appropriate resource allocation for base support services.

Evidence: The Marine Corps does not have long-term outcome based metrics for its base support services. Therefore, it is not possible to determine whether the Marine Corps has demonstrated adequate progress in achieving its long-term performance goals.

Does the program (including program partners) achieve its annual performance goals?

Explanation: The Marine Corps typically meets its annual output goals for base support services. But, in the absence of long-term outcome-based performance metrics, it is impossible to determine whether its annual performance goals are appropriate.

Evidence: The Marine Corps is currently working with the Office of the Secretary of Defense to develop common output level standards for base support services that will reflect outcomes and link with annual outputs.

Does the program demonstrate improved efficiencies or cost effectiveness in achieving program goals each year?

Explanation: The efficiency metrics for most Marine Corps Base Operating Support activities are difficult to apply directly to desired outcomes. Nonetheless, the Marine Corps has achieved efficiencies through the use of competitive sourcing that are demonstrated by A-76 studies. In addition, the Marine Corps has made more efficient use of its military manpower by converting non-military essential positions to civilian positions.

Evidence: The Marine Corps have conducted 35 successful competitive sourcing competitions since 1999 that have resulted in around $113 million in savings to taxpayers. Additionally, the Marine Corps has converted over 3000 positions formerly performed by Marines to civilian billets, thereby increasing the number of Marines available to the fighting forces.

Does the performance of this program compare favorably to other programs, including government, private, etc., with similar purpose and goals?

Explanation: The lack of common metrics prevents a fruitful comparison of base support services between the Marine Corps and other military services. Nonetheless, attempts to compare Marine Corps base support services with other military services indicate that the Marine Corps program is relatively successful.

Evidence: The Marine Corps have received awards from the Department of Defense for energy efficiency in transportation and environmental management, which indicate favorable performance relative to the other military services.

Do independent evaluations of sufficient scope and quality indicate that the program is effective and achieving results?

Explanation: Independent evaluations have shown that many functional areas of Marine Corps base support services are effective and achieving results. But, evaluations are not sufficiently wide in scope to determine whether the program is effective as a whole. The GAO has noted that the Base Operating Support program as a whole has achieved mixed results in providing services from year to year.

Evidence: The GAO has listed support infrastructure as a high-risk area and has documented numerous examples of mixed performance. Nonetheless, the GAO has acknowledged that the Marine Corps is making progress in its management of base support services. Still, the Marine Corps needs a more mature analytical framework for providing and measuring base support services to ensure that they are adequately provided to its installations. The Marine Corps has conducted limited reviews of its base support services. It hired outside consultants to evaluate its Fire Program. Four separate outside assessments rated Marine Corps Fire Departments as mission capable. Each installation's Environmental Management System is reviewed every three years by the Headquarters Marine Corps. Environmental compliance is also confirmed by the Environmental Protection Agency. The Marine Corps hires an outside organization to conduct monthly audits of quality and costs of its food services. In addition, nearly all Marine Corps childcare facilities are accredited.