defense budgeting essay
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Roberto Ortega Zloczewer
Student number: 10616720
E-mail address: [email protected]
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I mprovements in the Acquisition Process of the DoD
Student number: 10616720
Introduction& background context
Substantial efforts have been pursued to obtain efficiency in the acquisition process of the
Department of Defense, including ones such as The Single Process I nitiative or the Director
of Acquisition Program I nitiative (Jones & McCaffery, 2007), the latter having proved to
manage costs and measure performance more precisely than before
However, there are many steps in the process that continue being inefficient, and in this paper I will propose some measures to maximize the output of the DoD, especially in relation
with its contractors. Contractors are not liable for important differences encountered between
what the DoD demanded and the actual output. This could be solved by directly changing the
contractors liability or, possibly better, modifying the competences and assigning clear roles to
the different Defense agencies in charge of supervising the contract.
Another topic discussed will be the future of public shipyards and R&D laboratories,
analyzing their supplemental cost to Defense.These facilities have decreasing activity levels but
are maintaining the majority of job positions. This automatically implies decreasing levels of
efficiency, and as stated in the Jones-McCaffery model, they should be eliminated. However, this
would affect an important stakeholder, the workforce, and is an unpopular political decision to
take.So, when is the right moment to execute this measure?
Finally, the last problem which will be dealt involves stakeholders from the aircraft
industry at a worldwide level. Can the U.S government subsidize Boeing? And, most
importantly, concentrating on the DoD: what is the objective of the latest massive defense
contracts signed with Boeing: supply the military with assets, or supply Boeing with liquidity?
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I n this paper, the Jones-McCaffery reengineering model will not be modified in itself, as
the initiatives presented in this essay will build upon this model and will explain how to bring
these measures to light. The solutions will be devised through a qualitative analysis, although
some numerical data will be available as well. The main goal of these reforms is to reduce not
only expenditures but also minimize project indicators such as cost,lead times and risk associated
to the acquired asset.
D ata & Analysis
In order to deal with the problem of contractors liability,
Iwill build upon the initiative
stated in the Jones-McCaffery model, which states that when the warfighter is not satisfied with
the performance of the asset that has been deployed, the DoD can force the contractor to pay the
U.S treasury a certain portion of the total contract cost, therefore making the contractor partly
liable for the problems or underperformances found in their asset. I n the book, it is forecasted
that the contractors will not meet this reform with their arms open(Jones & McCaffery, 2007).
However, even if they dont like the proposal, they wont be able to turn their heads away from
the DoD and start looking for contracts abroad, because of the downside their profits would
experience. For example, 84% of Lockheed Martins revenue comes from contracts with the
DoD (Wikinvest), who therefore has great negotiation power to decide the rules which are to be
followed. By implementing this measure, contractors would be more engaged in delivering the
correct product, as they are partly liable for the final outcome, both parties bearing the risks.
This measure aims to change the relationship between national contractors and the DoD,
in order to distribute the liability between the two parties. However, what if the original problem
that causes the liability issue (the difference between what Defense asked for in the contract and
what the contractor finally delivered), is caused by misinterpretations among different agencies
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in the DoD?
Here comes in the second problem: the confusion of roles among two important agencies
that are part of the Under Secretary of Defense (USD): the Defense Contract Audit Agency
(DCAA) and the Defense Contract Management Agency (DCMA). There is only one letter that
differentiates their acronym, and that seems on purpose: these two agencies have many
overlapping roles. The DCAA agency basically audits the contracts and gives financial advice
regarding these contracts, while onthe other hand the DCMA surveys and provides advice before
the contract has been awarded, and once the contract has been awarded it measures the
performance of the contractor in terms of cost, schedules and asset capabilities in order toguarantee that everything is going as planned (Ford).
Therefore, their functions overlap before the contract takes place, as they both give
advice about it. The situation is aggravated by the fact that although both agencies are part of the
USD, the DCAA is under the USD Comptroller, while the DCMA is in the USD AT&L
(Acquisition, Technology and Logistics), preventing direct contact between them (Ford), which
is crucial given the similar nature of the roles they are undertaking. Their different stances on a
yet unsigned contract can confuse the potential contractor, as well as delay the whole acquisition
process, creating inefficiencies. These can be detected by analyzing the results of Grant Thornton
LLPs 16 th Annual Government Contractor I ndustry Survey: 74% of private government
contractors found the government inefficient when it came to resolving contract issues, and of
these, 56% found the inefficiencies within the DCAA (Hall, 2010) .
This unsettling data calls for an urgent reform under the hood of the USD. The DCAA
and the DCMA could jointly analyze the potential contract and do the auditing, and arrive
together to a conclusion. Once the contract has been awarded, the present procedure would
continue, where the DCMA monitors the performance of the contractor and see if the interests of
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DoD are aligned with what the contractor is actually producing. This reform follows the
principle of creating joint groups for certain decisions, which is underlined in the Jones-
McCaffery model.
The third problem, treated in this model, involves the facilities owned or contracted by
the DoD, which include shipyards and out-of-date R&D facilities. I n the book, it is
recommended that these public companies should be eliminated after analyzing the little value
which they create in comparison with the cost that they represent. Many of these shipyardsare
not active, and those thatare operational produce aircraft carriers, which are, as Mark Thompson
from Time Magazine states, old fashionedand include expensive manned aircraft that are not part of the present tendency to go for less costly and more versatile weaponry and assets, such as
drones or cruise missiles, used in Lybia recently (2011). Therefore, eliminating these shipyards
would also help the reengineering process in changing from a push strategy (produce an
aircraft carrier and then see where it can be used (as is happening today) to a pull strategy (initial
question: do we really need an aircraft carrier?).
However, a question that remains unanswered is: when is the moment to close them? Or,
better said, when will politicians abide to follow such an unpopular program as is eliminating
jobs? After analyzing present situation, in which both Democrats and Republicans are presenting
different plans to deal with the deficit over the following years, the moment is right now.
Obamas treatment of the deficit includes a cut of $400 billion over the next twelve years
(ASMC, 2011), which should include the elimination of these inefficient facilities. At least for a
politician, this is the right time to take this kind of action without becoming too unpopular, as
many citizens see the budget savings as necessary.
Finally, the fourth problem deals again with private contractors, but in this case with one
in particular: Boeing. The question is: are the reasons behind the DoDs massive defense
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contracts with Boeing following a pull strategy (because the DoD needs certain capabilities),
as it should be, or is there a secondary goal, to fund Boeing in its battle with Airbus? On
Thursday, March 31 st 2011, the WTO confirmed as illegal the $5.3 billion subsidies which the
U.S government provided to Boeing. But what about the $35 billion contract to supply the Air
Force with new aerial refueling tankers?(Clark, 2011). I s that really a need, or is it in part an
excuse in order to veil the subsidies towards Boeing? The United States, as well as Europe
(with Airbus), Canada (with Bombardier) and Brasil (with Embraer) should stop subsidizing
their aircraft companies (Doh, 2003), and make of this highly subsidized sector a competitive
and more efficient one. At the moment, by looking at the delays and technical problems presentin the Boeing Dreamliner 787 and the Airbus 380 (Moellenkamp, 2008), it could be said that the
financial safe net that governments offer dont go hand in hand with efficiency.
C onclusions
After analyzing the problems and offered possible solutions, here are the 4 main
conclusions reached:
1. The DoD has enough negotiation power, as the majority of their revenues come from U.S
DoD contracts, to force national contractors to assume part of the liability if the asset
delivered differs from the expected, and should do so to diversify risks .
2. The DCAA and the DCMA should jointly analyze potential contracts and reach
collectively to a decision about it. This would eliminate overlapping decisions and
inefficiencies .
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3. I t is necessary to shut down underperforming R&D facilities and shipyards, and the
moment to do so which will be less politically damaging is now, when the possibility
of a fiscal crisis gives makes budget cuts a priority.
4. DoD should not sign massive contracts with Boeing if one of the main reasons is to
subsidize the latter; reduces efficiency in Boeing (they have a safety net) and can
distract DoD from following a pull strategy (ordering what they need), creating the risk
of buying unnecessary assets.
Ultimately, these conclusions deal with achieving more efficiency and reducing the risk of theassets acquired. These two goals are the main pillars of capital budgeting(Jones & McCaffery
2007), which is being gradually implemented in the budgeting and acquisition process of the
Department of Defense.
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References
ASMC ( American Society of Military Comptrollers). Presidents $4 trillion deficit reduction plan
includes $400 billion cut to defense. (2011, April 13). Ascmonline.org Retrieved April
15, 2011, from http://www.asmconline.org/2011/04/presidents-4-trillion-deficit-
reduction-plan-includes-400-billion-cut-to-defense/
Clark, N. (2011, March 31). W.T.O. Rules U.S. Subsidies for Boeing Unfair - NYTimes.com.
The New York Times . Retrieved April 15, 2011, from
http://www.nytimes.com/2011/03/31/business/global/01trade.html
Doh, J. P. (2003, December 1). The Bombardier-Embraer Dispute and its I mplications for
Western Hemisphere I ntegration. CSIS: Center for Strategic & International Studies .
Retrieved April 15, 2011, from csis.org/files/media/csis/pubs/pp0312doh%5B1%5D.pdf
Ford, J. N., Cherry &Bekaert& Holland, L.L.C.The Relationship Between DCAA and
DCMA. Cherry, Bekaert& Holland - Certified Public Accountants and Consultants .
Retrieved April 15, 2011, from http://www.cbh.com/news/newsletter_details.asp?id=293
Hall, K. B. (2010). 16th Annual Government Contractor I ndustry Survey Highlights Book.
Grant Thorton . Retrieved April 13, 2011, from
http://www.grantthornton.com/staticfiles/GTCom/Government%20contractors/Governm
ent%20contractor%20files/16th_HighlightsBook.pdf
Jones, L. R., & McCaffery, J. L. (2007).Budgeting and Acquisition Business Process
Reform. Budgeting, Financial Management, And Acquisition Reform in the U.S
Department of Defense (pp. 603-661). I nformation Age Publishing.
Moellenkamp, J. (2008, December 14). A380 vs. Boeing 787 delay. c0t0d0s0.org . Retrieved
April 15, 2011, from http://www.c0t0d0s0.org/archives/5119-A380-vs.-Boeing-787-
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delay.html
Thompson, M. (2011, April 14) How to Save a Trillion Dollars - T I ME.TIME.COM . Retrieved
April 15, 2011, from http://www.time.com/time/politics/article/0,8599,2065108,00.htmlWikinvest.Stock: Lockheed Martin (LMT). wikinvest . Retrieved April 14, 2011, from
www.wikinvest.com/stock/Lockheed_Martin_(LMT)