C O R P O R A T I O N ELLEN M. PINT, BETH E. LACHMAN, KATHERINE ANANIA, CONNOR P. JACKSON Improving the Allocation and Execution of Army Facility Sustainment Funding RR-3240_8.5x11_v4.indd All Pages 4/14/20 4:00 PM For more information on this publication, visit www.rand.org/t/RR3240 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-1-9774-0352-0 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2020 RAND Corporation R® is a registered trademark. Cover: Ridgway Hall, Fort Benning, Georgia Photo by Beth E. Lachman 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. 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 documents research and analysis conducted as part of a project entitled IMCOM Installation Facility Sustainment Improvement sponsored by the Commanding General, U.S. Army Installation Management Command (IMCOM). The purpose of this project was to identify strategies to improve the allocation of facility sustainment, restoration, and modern- ization (SRM) funding to maximize the benefits to installations within the resources allotted. This research was conducted within RAND Arroyo Center’s Forces and Logistics Program. RAND Arroyo Center, part of the RAND Corporation, is a federally funded research and development center (FFRDC) sponsored by the United States Army. RAND operates under a “Federal-Wide Assurance” (FWA00003425) and complies with the Code of Federal Regulations for the Protection of Human Subjects Under United States Law (45 CFR 46), also known as “the Common Rule,” as well as with the implementation guidance set forth in DoD Instruction 3216.02. As applicable, this compliance includes reviews and approvals by RAND’s Institutional Review Board (the Human Subjects Protection Committee) and by the U.S. Army. The views of sources utilized in this study are solely their own and do not represent the official policy or position of DoD or the U.S. Government. iii Contents Preface ........................................................................................................... iii Figures ........................................................................................................... ix Tables ............................................................................................................ xi Summary .......................................................................................................xiii Acknowledgments ............................................................................................ xix Abbreviations .................................................................................................. xxi CHAPTER ONE Introduction ..................................................................................................... 1 Background and Purpose ....................................................................................... 1 Research Approach ............................................................................................... 2 Information Technology Systems Involved in Facility Sustainment ....................................... 4 General Fund Enterprise Business System Real Property ................................................. 4 The Installation Status Report for Infrastructure .......................................................... 5 Sustainment Management Systems .......................................................................... 5 Computerized Maintenance Management Systems ....................................................... 5 The Organization of This Report .............................................................................. 6 CHAPTER TWO Insights from Installation Visits and Interviews .......................................................... 7 Recent Trends in Sustainment, Restoration, and Modernization Funding ............................... 8 Installation-Level Processes for Allocation of Facility Sustainment, Restoration, and Modernization Funding ...................................................................................10 Challenges in Making the Best Use of Sustainment, Restoration, and Modernization Funding .....12 Shortage of Directorate of Public Works Staff ............................................................12 Difficulties Using the General Fund Enterprise Business System ......................................14 Other Factors That Erode Buying Power ..................................................................15 Practices to Improve the Use of Sustainment, Restoration, and Modernization Funding .............16 Process Improvements ........................................................................................16 Prioritization of Sustainment Projects ......................................................................17 Alternative Sources of Funding .............................................................................17 Conclusions ......................................................................................................19 v vi Improving the Allocation and Execution of Army Facility Sustainment Funding CHAPTER THREE Insights from Installation Status Report Data Analysis ...............................................21 Examples of Installation Status Report for Infrastructure Data .......................................... 22 Facility Transition Rates ...................................................................................... 27 Conclusions ......................................................................................................28 CHAPTER FOUR Insights from the Office of the Secretary of Defense and the Services ..............................31 Relevant Office of the Secretary of Defense Activities Related to Installation Facility Sustainment .......................................................................................31 Office of the Secretary of Defense Policies ................................................................31 Insights from the Office of the Secretary of Defense Real Property Reform Management Group Activities ......................................................................................... 34 Defense Business Board Examination Regarding Real Property Management .......................35 Navy Installation Facility Sustainment Practices .......................................................... 36 Navy Risk-Based Targeted Facilities Investment Strategy .............................................. 36 Navy Uses of Software Tools to Help with Facility Sustainment .......................................41 U.S. Marine Corps Installation Facility Sustainment Practices ...........................................41 The U.S. Marine Corps Forces Reserve ................................................................... 42 Air Force Installation Facility Sustainment Practices ...................................................... 42 A Centralized Process: The Comprehensive Asset Management Plan ................................ 43 The Decentralized Process Is Based on Installation Execution Plans ................................. 46 The Air Force Category Management Program ...........................................................47 Army Reserve Component Facility Sustainment Practices.................................................47 Army National Guard ........................................................................................47 U.S. Army Reserve ............................................................................................49 The Proposed Army Mission Dependency Index .......................................................... 50 Conclusions ......................................................................................................52 CHAPTER FIVE Insights from Facility Management Trends, Practices, and Research ...............................55 The Facility Management Framework .......................................................................55 Facility Management Strategies .............................................................................. 56 Comparison with Army Policies Regarding Facilities Management Strategies ....................... 60 Facilities Management Performance Metrics ................................................................61 Facilities Maintenance Prioritization Tools ..................................................................63 Facilities Management Research Trends .................................................................... 64 Conclusions