United States Government Accountability Office Report to the Chairman, Committee on Commerce, Science, and Transportation, U.S. Senate October 2017 COAST GUARD Actions Needed to Close Stations Identified as Overlapping and Unnecessarily Duplicative GAO-18-9 October 2017 COAST GUARD Actions Needed to Close Stations Identified as Overlapping and Unnecessarily Duplicative Highlights of GAO-18-9, a report to the Chairman, Committee on Commerce, Science, and Transportation, U.S. Senate Why GAO Did This Study What GAO Found The Coast Guard, within the GAO found that the U.S. Coast Guard has a sound process for analyzing its boat Department of Homeland Security stations that includes clear and specific steps for analyzing the need for stations (DHS), is charged with preventing loss using terms that can be readily defined and measured. In 2013, following this of life, injury, and property damage in process, the Coast Guard and its contractor identified 18 unnecessarily the maritime environment through its duplicative boat stations with overlapping coverage that could be permanently SAR mission. It maintains over 200 closed without negatively affecting the Coast Guard’s ability to meet its 2-hour stations with various assets, such as search and rescue (SAR) response standard and other mission requirements. boats and helicopters (depending on The process was designed to ensure the Coast Guard met or exceeded the station), along U.S. coasts and requirements to maintain SAR coverage and to account for such factors as boat inland waterways to carry out this downtime and surge capacity to respond to certain incidents. Further, the boat mission, as well as its other missions such as maritime security. Resource station analysis did not consider potential SAR responses by the Coast Guard’s limitations and changes to operations air stations and facilities, which can provide additional overlapping coverage. require the Coast Guard to periodically Coast Guard officials said that the closures would, among other things, help reexamine the need for these stations. improve operations by consolidating boat station caseloads to help ensure GAO was asked to review these personnel were active enough to maintain training requirements. efforts. Overlap of Coast Guard Search and Rescue Coverage Provided by Boat Stations, Air Stations, This report addresses, among other and Air Facilities as of May 2017 objectives, the extent to which the Coast Guard has (1) a sound process for analyzing the need for its boat stations and (2) taken actions to implement its boat station process results. GAO reviewed Coast Guard laws, standards, and guidance; analyzed Coast Guard data on station locations and SAR coverage; and analyzed the process and criteria used to evaluate its station needs and compared it with established evaluation design practices and internal control standards. GAO also interviewed Coast Guard officials. What GAO Recommends GAO is making three recommendations, including one recommendation that the Coast Guard close unnecessarily duplicative stations that its analysis identified. In 2017, the Coast Guard affirmed that its leadership believes the 2013 study DHS concurred with the remains valid, but so far the agency has not taken actions to implement the recommendations and stated it plans closures identified by its sound process. Instead, the Coast Guard is to act to eliminate unnecessary recommending conversion of some year-round stations to seasonal stations that duplication. would operate during the summer. Coast Guard officials stated that seasonal closures are preferable to no action, given its limited resources, the significant overlapping SAR coverage, and potential to improve operations. However, View GAO-18-9. For more information, contact Jennifer Grover at (202) 512-7141 or permanently closing unnecessarily duplicative stations may better position the [email protected]. Coast Guard to improve its operations. It could also achieve up to $290 million in cost savings over 20 years, if stations were permanently closed. United States Government Accountability Office Contents Letter 1 Background 6 Coast Guard Has a Sound Process for Analyzing the Need for Boat Stations and the Results Identified Overlap and Unnecessary Duplication 13 A 2014 Analysis of Selected Coast Guard Air Stations and Air Facilities Identified Unnecessary Duplication but Coast Guard Would Benefit from a Comprehensive Process 22 Coast Guard Has Not Taken Actions nor Developed a Plan to Close Unnecessarily Duplicative Stations Its Analyses Identified 26 Conclusions 37 Recommendations for Executive Action 38 Agency Comments and Our Evaluation 38 Appendix I Scope and Methodology 40 Appendix II Selected Coast Guard Assets 44 Appendix III Extent of Search and Rescue Coverage by Coast Guard Boat Stations in the Contiguous United States 46 Appendix IV Reported Single-Boat Search and Rescue Responses by Selected Stations, Fiscal Years 2010 through 2016 50 Appendix V Comments from the Department of Homeland Security 53 Appendix VI GAO Contact and Staff Acknowledgments 55 Tables Table 1: Coast Guard’s 9-Step Boat Station Optimization Process, Criteria, and Actions Taken for Each Process Step 17 Page i GAO-18-9 Coast Guard Search and Rescue Table 2: Summary of Selected Coast Guard Recommendations to Change Boat Station Operations 30 Table 3: Selected Coast Guard Boats Used for Search and Rescue (SAR) at Boat Stations 45 Table 4: Total Single Station Coast Guard Search and Rescue (SAR) Cases for Selected Boat Stations, Fiscal Years (FY) 2010 through 2016, and Estimated FY 2015 Annual Operating Cost 50 Table 5: Winter Single Station Coast Guard Search and Rescue (SAR) Cases Reported for Selected Boat Stations, Fiscal Years 2010 through 2016 52 Figures Figure 1: Coast Guard’s Field Structure 8 Figure 2: How the Coast Guard Conducts a Search and Rescue (SAR) Case 10 Figure 3: GAO Definitions of Fragmentation, Overlap, and Duplication 12 Figure 4: Coast Guard’s 9-Step Station Optimization Process with Criteria to Analyze the Need for Boat Stations 14 Figure 5: Extent of Search and Rescue Coverage Provided by Coast Guard Boat Stations in Districts 1, 5, and 9 Reported in September 2013 (Current as of May 2017) 16 Figure 6: Map of Coast Guard Helicopter Coverage as of August 2017 24 Figure 7: Timeline of Studies and Actions to Address the Need for Coast Guard Stations, 1970 to 2017 (number of proposed closures denoted within the shapes below) 28 Figure 8: Overlap of Coast Guard Search and Rescue Coverage Provided by Boat Stations, Air Stations, and Air Facilities, May 2017 35 Figure 9: Extent of Search and Rescue Coverage by Boat Stations in the Contiguous United States Reported in September 2013 (Current as of May 2017) 46 Figure 10: Extent of Search and Rescue Coverage by Coast Guard Boat Stations in District 1 Reported in September 2013 (Current as of May 2017) 47 Figure 11: Extent of Search and Rescue Coverage by Coast Guard Boat Stations in District 5 Reported in September 2013 (Current as of May 2017) 48 Page ii GAO-18-9 Coast Guard Search and Rescue Figure 12: Extent of Search and Rescue Coverage by Coast Guard Boat Stations in District 9 Reported in September 2013 (Current as of May 2017) 49 Abbreviations ACCAM Aviation Capability and Capacity Assignment Module BBEDCA Balanced Budget and Emergency Deficit Control Act BCA Budget Control Act cgSARVA Coast Guard Search and Rescue Visual Analytics D1 Coast Guard District 1 D5 Coast Guard District 5 D9 Coast Guard District 9 DHS Department of Homeland Security FY fiscal year MISLE Marine Information for Safety and Law Enforcement SAR search and rescue SMC SAR mission coordinator Stations (small) seasonally operated detached sub-units of larger parent stations U.S.C. United States Code 9-Step Process Coast Guard’s 9-step station optimization process This is a work of the U.S. government and is not subject to copyright protection in the United States. The published product may be reproduced and distributed in its entirety without further permission from GAO. However, because this work may contain copyrighted images or other material, permission from the copyright holder may be necessary if you wish to reproduce this material separately. Page iii GAO-18-9 Coast Guard Search and Rescue Letter 441 G St. N.W. Washington, DC 20548 October 26, 2017 The Honorable John Thune Chairman Committee on Commerce, Science, and Transportation United States Senate Dear Mr. Chairman: The United States Coast Guard (Coast Guard), within the Department of Homeland Security (DHS), is the principal federal agency charged with preventing loss of life, injury, and property damage in the maritime environment through its search and rescue (SAR) mission, which it conducts along with 10 other missions including marine environmental protection and drug interdiction.1 To fulfill its SAR responsibilities, along with its other missions, the Coast Guard maintains multimission boat stations, air stations, and air facilities, with associated assets such as boats, helicopters, and fixed wing aircraft, along our coasts and inland waterways.2 While some missions conducted out of these stations, such as ports, waterways, and coastal security, have increased in recent years, annual Coast Guard search and rescue caseloads have decreased from about 32,000 cases per year in 2004 to about 17,000 in 2016, a reduction of 47 percent. The need to balance a broad array of missions, while operating under constrained budgets in recent years, underscores the importance for the Coast Guard to ensure its stations are needed and optimally located.3 1The Coast Guard’s 11 statutory missions are (1) ports, waterways, and coastal security, (2) migrant interdiction, (3) defense readiness, (4) drug interdiction, (5) other law enforcement, (6) search and rescue, (7) living marine resources, (8) aids to navigation, (9) ice operations, (10) marine environmental protection, and (11) marine safety. 6 U.S.C. § 468(a). 2The Coast Guard refers to its stations as multimission because of the various missions performed out of these stations.