Joint Basing

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Joint Basing

• ODUSD(IE)/Basing
• OUSD(C)/Program Budget/Operations
• May 2009

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Overview

• BRAC 2005
• Guidance
• Who We Are
• Resource Transfers
• Cost Performance and Visibility Framework
• Current Actions
• Way Ahead

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BRAC Joint Basing

• Pre BRAC - Separate Military Departments
  providing similar installation services at bases
  in close proximity
• BRAC Recommendation 146
• Realign 26 bases into 12 joint bases with one
  Military Department assigned as the lead at each
  location
• Legal requirement to implement Joint Basing no
  later than September 15, 2011

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Joint Basing

• PHASE 1
• Andrews AFB NAF Washington Joint Base
  Andrews-Naval Air Facility Washington
• McGuire AFB Ft Dix / NAES Lakehurst Joint
  Base McGuire-Dix-Lakehurst
• NAB Little Creek Ft Story Joint Expeditionary
  Base Little Creek-Story
• Naval Base Guam Andersen AFB Joint Region
  Marianas
• Ft Myer Henderson Hall Joint Base
  Myer-Henderson Hall
• PHASE 2
• Charleston AFB NWS Charleston Joint Base
  Charleston
• Elmendorf AFB Ft Richardson Joint Base
  Elmendorf-Richardson
• Lackland AFB Randolph AFB / Ft Sam Houston
  Joint Base San Antonio
• Langley AFB Ft Eustis Joint Base
  Langley-Eustis
• Anacostia Annex Bolling AFB Joint Base
  Anacostia-Bolling
• NS Pearl Harbor Hickam AFB Joint Base Pearl
  Harbor-Hickam
• Ft Lewis McChord AFB Joint Base
  Lewis-McChord

Navy Lead
Army Lead
Lead Component will be responsible for providing
Installation Support for the entire Joint Base
or Region
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Joint Basing Implementation Guidance (JBIG)

• Signed Jan 22, 2008 by DEPSECDEF
• FOC accomplished when TOA, real property
  accountability, personnel transferred to the
  lead Service (Supporting Component)
• 2-phased approach
• Defines 49 installation support functions that
  will transfer
• Uses 267 Common Output Level Standards (COLS) for
  installation support functions performance
  standards

Phase I
Phase II
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Joint BasingInstallation Support Functions

• Airfield Ops
• Child Youth Services
• Command Management
• Installation Public Affairs
• Legal Support
• Financial Management
• Management Analysis
• Procurement Operations
• Installation Safety
• Installation Chaplain Ministries
• Installation History Museums
• Custodial Services
• Emergency Management
• Environmental Compliance
• Environmental Conservation
• Environmental P2
• Environmental Restoration
• Facilities Demolition
• Facilities New Footprint

• Info Technology Services Management
• Lodging
• Military Personnel Services
• Morale, Welfare Recreation
• Base Support Vehicles Equipment
• Installation Movement
• Unaccompanied Personnel Housing Services
• Utilities
• Warfighter Family Services
• Pavement Clearance Services
• Pest Control Services
• Port Services
• Readiness Engineering Services
• Real Property Management Engineering Services
• Real Property Leases
• Refuse Collection Disposal
• Installation Law Enforcement Ops
• Installation Physical Security Protect Services
• Installation Protection Support

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Joint Management Oversight Structure (JMOS)
Established by the Deputy Secretary in the Joint
Basing Implementation Guidance issued in January
2008
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Joint Basing Definitions for Supporting,
Supported, Tenant

• Tenants
• Non-DoD organizations
• DoD Agencies
• DoD Activities
• Army National Guard
• Air National Guard
• Working Capital Fund organizations

Supporting (Lead Component) BRAC decision
Supported (All other MilDep Components)
Any Military Department organization previously
treated as a tenant will be classified as part of
the supporting or supported Component
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Joint Basing DefinitionsTOA and Real Property
Transfer
Supporting (Lead Component)
Supported (All other MilDep Components)
Total Obligation Authority Real Property
Accountability
Tenants
Reimbursement
Transfer of real property and total obligation
authority from supported Components to the
supporting Component to occur prior to full
operational capability
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Joint BasingMemorandum of Agreement (MOA)
Memorandum Of Agreement Signed by Vice Chiefs

• 22 Annexes
• Organization
• Manpower
• Budget Details
• Real Property Sites
• Implementation Plan

MOA Template
49 Installation Support Functions
Joint Base Implementation Guidance
Supporting
267 Common Output Level Standards
Supported
Supplemental Guidance
Component influence
DoD Policy
Deviation
Variance
Tenant

• Costs to meet COLS documented in the MOA (PB-14)
• Supporting Component budgets to meet COLS
• Supported Component transfers TOA to meet COLS

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Elements of Joint BasingImplementation
Full Operational Capability (FOC)
Develop Memorandum of Agreements (MOA)
Initial Operational Capability (IOC)
Develop Joint Base Guidance
HQ
HQ Installation

• Conduct real property assessment valuation
• Design optimal organization
• Identify positions to transfer
• Develop budget details
• Baseline historical cost performance data
• Perform comparative benchmarking

• Reimbursement for contract consolidation
• Posture for civilian transfer transition of
  military billets
• Reimbursement for interim services due to
  relocation
• Real property transfer plan
• Physical reassignment repositioning of resources

• Issue Joint Base Implementation Guidance
• Complete Supplemental Guidance/MOA Template
• Define Joint Base Performance Standards
• Assign Installations to Phases

• Full civilian installation support transferred
• TOA real property transfer effective
• Complete transition of military billets

MOAs document supporting/supported Component
relationships and are signed by the Components
Vice Chiefs of Staff
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Phase I Joint Base MOA Status
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The Way Ahead Phase 2 Joint Base MOA Schedule 2009
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PB-14 Purpose

• Gather individual installation resource
  requirements for the Joint Bases, both funding
  and manpower to
• ensure proper installation management resourcing,
  
• establish the baseline for the Cost and
  Performance Visibility Framework (CPVF)
• provide the basis for budget transfers
• Primary purpose is to collect the Should Be
  resource requirements to conduct Installation
  Support activities on those installations
  involved in Joint Basing (BRAC 2005
  Recommendation 146) to transfer Civilian
  Authorizations and Total Obligation Authority
  (TOA) from the Supported Component(s) to the
  Supporting Component
• Should Be As-Is Shortfall to Meet COLS

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PB-14 Revisions

• Issue Reduce complexity of data calls
• Resolutions
• Reduced scope of data gathered in the exhibit
• Deleted request for data not related to TOA
  transfer (ex. Installation Population)
• Clarified instructions
• Standardized the document data collection and
  minimized edits to format and content
• Drop down menus added and formatting standardized

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Highlighted Changes to PB-14

• Original PB-14
• Multiple transaction types
• Guidance refined along the way
• Free-form survey
• Revised PB-14
• Reduced scope
• Simplified and firmed up instructions
• Controlled data entry with drop-down lists
• Increased emphasis on the relationship between
  manpower requirements and associated funding

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PB-14 Business Rules

• Business rules will facilitate consistent cost
  reporting within the PB-14 exhibit of a
  Memorandum of Agreement
• Draft rules were reviewed at the PB-14 Workshop
  in San Antonio, 20-21 Nov 08
• SJBWG approved the business rules, 15 Dec 08

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PB-14 Business Rules

• Fact of Life Changes
• Adjustments for fact-of-life changes are the
  responsibility of the supporting Component (e.g.,
  price increases)
• Contingency Costs
• Supporting Component is responsible for
  requesting supplemental funding, where
  appropriate, for incremental contingency (e.g.,
  Global War on Terror (GWOT)) installation support
  costs
• Supplemental to Base Installation Support
  requirement should be annotated as part of the
  Base Budget
• No supplemental (e.g., GWOT) requirements for
  FY10-15 should be identified on the PB-14

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PB-14 Business Rules (cont)

• Baseline (As-Is)
• Funding FY2008 Certified Obligations (as of 30
  Sept 08) inflated at 2 per year for FY2009-15
• Manpower FY2008, Actual Authorizations FY2009,
  Presidents Budget Authorized Personnel
  FY2010-15, flat-lined at FY2009 personnel numbers
• Both Funding Manpower lines can be adjusted for
  known changes
• Shortfall
• Funds required to standardize services across the
  joint base must be linked to a specific COLS
• When no COLS exist for a function/sub-function,
  unless otherwise agreed to, supporting Component
  policy is used to define funding requirement

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PB-14 Business Rules (cont)

• Facility Investment Programs
• Facilities Sustainment will be annotated on the
  Base Budget line based on OSD policy (currently
  90 of the installations Facility Sustainment
  Model (FSM) requirement)
• Transfer (OM and MILCON) - Fund facilities
  Restoration Modernization at formula rate once
  developed, includes demolition
• DUSD(IE) has the action to define the rate
• Non-Signatories of the MOA
• Document in the PB-14 installation support costs
  for non-signatories of the MOA
• Other Supported Component Other Components not
  mentioned in BRAC 2005 but resident on the
  installation
• e.g., Army Unit at JB Andrews-NAF Washington
• Tenant Organization Reference JBIG definition

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PB-14 Business Rules (cont)

• Working Capital Fund
• Categorized into 3 types in PB-14 guidance
• Mission-oriented WCF activities (e.g., Depot
  Maintenance, Transportation) will reimburse the
  Supporting Component for installation support
• Mission-oriented WCF activities with embedded IS
  functions personnel and funding for installation
  functions will transfer to the Supporting
  Component
• Installation Support-oriented WCF activities
  becomes the responsibility of the Supporting
  Component
• IS-Oriented WCF within the Supporting Component
  will support the Joint Base
• IS-Oriented WCF within the Supported Component
  will transfer to the Supporting Component

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PB-14 Business Rules (cont)

• Military Construction (MILCON)
• MILCON Supported Components MILCON projects
  and associated funding in Budget Year 1 (BY1)
  of the current Presidents Budget (the Program
  of Record) will be transferred to the Supporting
  Component via PBD during the next Program/Budget
  Review
• e.g. FOC date of Oct 2010, MILCON projects
  programmed by Supported Components at the Joint
  Base in the FY 12 column of the FY 11 Presidents
  Budget.
• Facilities Sustainment Supported Components
  Facilities Sustainment funding in the outyears
  after the beneficial occupancy date of
  transferred MILCON projects will be transferred
  to the Supporting Component via PBD during the
  next Program/Budget Review based on OSD guidance
  (currently 90) of the Facility Sustainment Model
  (FSM) requirement for that type of facility.
• Collateral Equipment and Furniture Supported
  Component is responsible for transferring funding
  for initial outfitting.

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PB-14 Business Rules (cont)

• BRAC Funding
• Joint Base implementation costs may be funded
  with
• BRAC appropriation (valid one-time implementation
  costs)
• Operation and Maintenance (OM) appropriation for
  valid Operation and Maintenance BRAC costs
• i.e., OM funds may not be used for military
  construction
• Supporting Component must use its Military
  Departments process to request BRAC funding
• Army Use OM appropriations to fund one-time
  OM-type costs
• Navy and Air Force Use BRAC appropriations to
  fund these costs

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Joint Base Resource TransfersFunding
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Joint Base Resource TransfersCivilian FTEs
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Relation of PB-14 to Cost and Performance
Visibility Framework (CPVF)

• The aim of the PB-14 is to facilitate the MOA
  development and implement TOA and FTE transfer
• Thus the PB-14 requires a finer level of detail
• Cost and Manpower at the PB-14 Option level
  (either Function or Sub-Function) whereas CPVF is
  at the Function level
• The PB-14 also gathers information on all the
  Organization Types whereas the CPVF only gathers
  data on those Components that sign the MOA and/or
  transfer TOA (CPVF does not gather data on
  Tenants)
• The aim of the CPVF is to monitor performance and
  if performance is not up to COLS, cost and
  manpower data may provide an explanation
• Thus, the PB-14 captures only a single snapshot
  in time
• CPVF gathers Allocated and Obligated Funding
  whereas the PB-14 gathers Obligated and Projected
  Obligations
• CPVF gathers Authorized and Assigned Personnel
  whereas PB-14 gathers only Authorized Personnel

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Cost and PerformanceVisibility Framework (CPVF)
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The Purpose of the CPVF

• Support the Joint Base Partnership Councils
  requirement to review the MOA for mission,
  manpower, and financial impacts
• MOA template, paragraph (6)(b)(3)(B), Provide
  transparent cost reporting feedback to the
  supported Component(s) by function annually
  through the Cost Performance Visibility
  Framework
• Assess installation support costs and performance
  against the terms of the MOA and COLS
• Provide for consistent reporting by all joint
  bases
• Inform the Joint Management Oversight Structure
  on the outcomes

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CPVF Capabilities

• Captures installation support performance against
  the MOA
• Captures expenditures in dollars and manpower
  resources for comparison to baseline historic
  costs
• Displays deltas with PB-14 data
• Captures subjective performance evaluations
  through narrative comments to further explain
  performance measured against objective criteria

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CPVF Key Elements

• The CPVF is a Microsoft Access application
• Four related types of data are tracked
• SME Performance Assessment by COLS
• Subjective Performance Assessment by Function,
  does not have to tie to COLS
• Cost
• Manpower
• Data structure aligns with revised PB-14

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CPVF Performance Form

• Installation SMEs will enter percents or yes/no
  for each standard by subfunction
• SMEs may provide a narrative comment

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CPVF Subjective Assessment Form

• Senior Component Representativesmay enter
  subjective assessmentsby function that
  supplement the objective metrics-driven
  assessments

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Cost and Performance Visibility
FrameworkBusiness Rules

• CPVF shall be used by all joint bases beginning
  at IOC
• From IOC to FOC, Cost and Manpower will be
  reported by both supporting and supported
  Component
• At FOC, cost and manpower will be reported by the
  supporting Component, for the Joint Base
• Performance will be tracked for both the
  supported Component(s) and supporting Component
  by COLS (267)
• With at least JBPC approval, any COLS standard
  can be set up for combined tracking. That is,
  performance for a specific COLS standard need not
  always be tracked separately for a Component.
• Cost and Manpower will be reported by function
  (49)
• Performance shall be reported quarterly and Cost
  and Manpower shall be reported annually
• No cumulative/average of performance for annual
  performance

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CPVF Business Rules (cont.)

• PB-14 data serves as the Should Be resource
  baseline
• Implementation of the CPVF is managed by the JBPC
• Data in the CPVF resides at the Joint Base with
  no automatic visibility up the JMOS
• All data and/or reports can be exported and
  transmitted when required
• Prior to first use, the JBPC may identify COLS
  standards that are not applicable to the Joint
  Base
• e.g. Demagnetizing ship hulls on Fort Myer

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The Way Ahead
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Final Thoughts

• Joint Basing will
• optimize installation management
• preserve mission capabilities unique Service
  identity
• require a team effort to be successful
• Joint Basing will not
• mandate a reduction of jobs
• be a one-size fits all approach
• be simple to implement, but the results are worth
  the effort

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Joint Basing How We Will Get There

• Leadership
• Common Framework
• Flexibility
• Communication

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Questions?
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Back-up Slides
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Who We AreInstallation Capabilities Council

• DoDI 4001.01, January 10, 2008, chaired by
  DUSD(IE)
• Representatives from
• Military Departments Office of the Secretary
• Military Services
• Chairman of the Joint Chiefs of Staff
• Under Secretary for Personnel and Readiness
• Under Secretary of Defense (Comptroller)/Chief
  Financial Officer
• Assistant Secretary of Defense for Networks and
  Information Integration/DoD Chief Information
  Officer
• Assistant Secretary of Defense for Reserve
  Affairs
• Assistant Secretary of Defense for Public Affairs
• General Counsel of the Department of Defense
• Director, Program Analysis and Evaluation
• Defense Logistics Agency
• Department of Defense Education Activity
• TRICARE Management Activity
• Director, Administration and Management

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Who We AreSenior Joint Base Working Group

• Part of the ICC
• Chaired by DUSD(IE)
• Components installation management leadership
• Military Departments Office of the Secretary
• Military Services
• Office of General Council
• OSD Chief Information Officer
• OSD Comptroller
• OSD Personnel and Readiness

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Who We AreSenior Installation Management Group
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Who We AreIntermediate Command Summit
Depicts ICS lead for each Joint Base
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Who We AreIntermediate Command Summit
Depicts ICS lead for each Joint Base
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Who We AreFunctional Teams

• Significant cross-Departmental effort since Jan
  08
• 36 Teams in 15 Functional Working Groups
• 49 installation support functions
• (e.g., Airfield Operations, Command Support,
  Community Services)
• 128 sub-functions
• (e.g., Airfield Systems, Equipment Maintenance,
  Air Traffic Control)
• Output
• Detailed supplemental guidance to aid
  installation prepared Memoranda of Agreement
• 267 performance-based metrics

Outstanding accomplishment by Service and OSD
members in resolving numerous, complex issues
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