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Enhancing U.S. Coast Guard Metrics Enhancing U.S. Coast Guard Metrics Scott Savitz, Henry H. Willis, Aaron C. Davenport, Martina Melliand, William Sasser, Elizabeth Tencza, Dulani Woods C O R P O R A T I O N For more information on this publication, visit www.rand.org/t/rr1173 Library of Congress Cataloging-in-Publication Data ISBN: 978-0-8330-9156-7 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2015 RAND Corporation R® is a registered trademark. Limited Print and Electronic Distribution Rights This document and trademark(s) contained herein are protected by law. This representation of RAND intellectual property is provided for noncommercial use only. Unauthorized posting of this publication online is prohibited. Permission is given to duplicate this document for personal use only, as long as it is unaltered and complete. Permission is required from RAND to reproduce, or reuse in another form, any of its research documents for commercial use. For information on reprint and linking permissions, please visit www.rand.org/pubs/permissions.html. The RAND Corporation is a research organization that develops solutions to public policy challenges to help make communities throughout the world safer and more secure, healthier and more prosperous. RAND is nonprofit, nonpartisan, and committed to the public interest. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. Support RAND Make a tax-deductible charitable contribution at www.rand.org/giving/contribute www.rand.org Preface This report is part of an effort to identify ways that the U.S. Coast Guard could improve how it measures its operational performance. Selecting the right operational-level metrics and using them effectively can help the Coast Guard with resource allocation, risk management, and external communications. The authors present an analysis of the elements of Coast Guard mis- sions and the Coast Guard’s existing metrics and propose potential metrics and a framework for using them. These findings are currently being considered by the Coast Guard and have not been adopted as Coast Guard doctrine. This research was sponsored by the U.S. Coast Guard Atlantic Area. It was conducted within the International Security and Defense Policy Center and the RAND Homeland Secu- rity and Defense Center of the RAND National Defense Research Institute, a federally funded research and development center sponsored by the Office of the Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the Navy, the Marine Corps, the defense agencies, and the defense Intelligence Community. The RAND Homeland Security and Defense Center (HSDC) conducts analysis to pre- pare and protect communities and critical infrastructure from natural disasters and terror- ism. Center projects examine a wide range of risk-management problems, including coastal and border security, emergency preparedness and response, defense support to civil authori- ties, transportation security, domestic intelligence, and technology acquisition. Center clients include the U.S. Department of Homeland Security, the U.S. Department of Defense, the U.S. Department of Justice, and other organizations charged with security and disaster pre- paredness, response, and recovery. HSDC is a joint center of two research divisions: RAND Justice, Infrastructure, and Environment and the RAND National Security Research Division. RAND Justice, Infra- structure, and Environment is dedicated to improving policy and decisionmaking in a wide range of policy domains, including civil and criminal justice, infrastructure protection and homeland security, transportation and energy policy, and environmental and natural resource policy. The RAND National Security Research Division conducts research and analysis for all national security sponsors other than the U.S. Air Force and the Army. The division includes the National Defense Research Institute, a federally funded research and development center whose sponsors include the Office of the Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the defense agencies, and the U.S. Department of the Navy. The National Security Research Division also conducts research for the U.S. intelligence commu- nity and the ministries of defense of U.S. allies and partners. iii iv Enhancing U.S. Coast Guard Metrics For more information on the RAND International Security and Defense Policy Center, see http://www.rand.org/nsrd/ndri/centers/isdp.html or contact the Center director (contact information provided on the web page). Questions or comments about this report should be sent to the project leader, Scott Savitz ([email protected]). For more information about the Homeland Security and Defense Center, see http://www.rand.org/hsdc or contact the director at [email protected]. Contents Preface ........................................................................................................... iii Figures ...........................................................................................................vii Tables ............................................................................................................ ix Summary ........................................................................................................ xi Acknowledgments ........................................................................................... xvii CHAPTER ONE Introduction ..................................................................................................... 1 Purpose and Structure of This Report ......................................................................... 1 CHAPTER TWO Methodology .................................................................................................... 3 Developing Logic Models ....................................................................................... 3 Analyzing Existing Metrics ..................................................................................... 6 Identifying Potential Metrics ................................................................................... 7 Composing a Framework ....................................................................................... 7 CHAPTER THREE Safety Missions .................................................................................................. 9 Search and Rescue ............................................................................................... 9 Marine Safety ....................................................................................................12 Summary of Findings on Safety Missions ...................................................................15 CHAPTER FOUR Security Missions ..............................................................................................17 Ports, Waterways, and Coastal Security ......................................................................17 Drug Interdiction .............................................................................................. 20 Migrant Interdiction ........................................................................................... 23 Defense Readiness ............................................................................................. 27 Summary of Findings on Security Missions ................................................................ 30 CHAPTER FIVE Stewardship Missions .........................................................................................33 Ice Operations ...................................................................................................33 Aids to Navigation and Waterways Management .......................................................... 36 Marine Environmental Protection ........................................................................... 38 v vi Enhancing U.S. Coast Guard Metrics Living Marine Resources ...................................................................................... 40 Other Law Enforcement ...................................................................................... 44 Summary of Findings on Stewardship Missions ............................................................47 CHAPTER SIX Discussion of Overall Findings .............................................................................49 Existing Metrics .................................................................................................49 Potential Metrics ................................................................................................52 CHAPTER SEVEN Using Metrics to Support Decisionmaking ...............................................................55 Necessary Conditions for Decisionmaking—Validity and Reliability ...................................55 Sufficient Conditions for Decisionmaking—Breadth and Clarity ....................................... 56 An Illustrative, Notional Example of Assessment Using the Logic Model Framework ................58 Implementing a Framework Using Metrics to Support Decisionmaking ................................61 CHAPTER EIGHT Concluding Remarks ..........................................................................................63 APPENDIXES A. Search and Rescue .........................................................................................65 B. Marine Safety ...............................................................................................71 C. Ports, Waterways, and Coastal Security ...............................................................81
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