A New Foundation for the Nuclear Enterprise Report of the Congressional Advisory Panel on the Governance of the Nuclear Security Enterprise The Honorable Norman R. Augustine, Co-Chairman Admiral Richard W. Mies, U.S. Navy (Retired), Co-Chairman Dr. Michael R. Anastasio Admiral Kirkland H. Donald, U.S. Navy (Retired) The Honorable T. J. Glauthier The Honorable David L. Hobson The Honorable Gregory B. Jaczko The Honorable Franklin C. Miller Dr. William Schneider, Jr. The Honorable John M. Spratt, Jr. The Honorable Ellen O. Tauscher The Honorable Heather A. Wilson November 2014 Preface Section 3166 of the Fiscal Year 2013 National Defense Authorization Act establishes the Congressional Advisory Panel on the Governance of the Nuclear Security Enterprise and tasks the advisory panel to offer recommendations “…with respect to the most appropriate governance structure, mission, and management of the nuclear security enterprise.” This report summarizes the panel’s findings on the current health of the enterprise, examines the root causes of its governance challenges, and offers the panel’s recommendations to address the identified problems. Appendix A contains the Section 3166 language on the panel’s charter; the panel members’ biographies are provided in Appendix B. The panel is grateful for the support provided for this research by individuals throughout the nuclear enterprise, and for the testimony and advice provided by invited witnesses. General Larry D. Welch (USAF, ret.) and Dr. Richard A. Meserve provided very helpful comments on a draft of this report. Research, logistics, and editorial support were provided by the Institute for Defense Analyses. iii Contents Preface................................................................................................................................ iii Executive Summary ........................................................................................................... ix Introduction ..........................................................................................................................1 1. Strengthen National Leadership Focus, Direction, and Follow-Through ..................9 CHALLENGES ................................................................................................................9 Lack of a Unifying Narrative Clarifying Resource Priorities ...........................11 Lack of an Executable Plan ...............................................................................12 Absence of Follow-Through for Governance Reform ......................................14 RECOMMENDATIONS ..................................................................................................15 2. Solidify Cabinet Secretary Ownership of the Mission ..............................................21 CHALLENGES ..............................................................................................................21 Overlapping DOE and NNSA Headquarters Staffs ..........................................22 Confused Roles, Responsibilities, Authorities, and Accountability .................23 Flawed DOE Processes for Risk Management..................................................24 RECOMMENDATIONS ..................................................................................................26 3. Adopt Proven Management Practices to Build a Culture of Performance, Accountability, and Credibility .................................................................................37 CHALLENGES ..............................................................................................................37 Lack of a Mission-Driven Culture.....................................................................39 Weak Career and Leadership Development ......................................................40 Absence of Trusted Cost and Resource Analysis ..............................................41 The Lack of Focus on Mission Deliverables .....................................................43 New Limitations on Internally Directed Research and Development ...............45 Shortfalls in Facilities and Infrastructure Modernization..................................46 An Inflexible Budget Structure that Undermines Mission Execution ...............48 Ineffective Communications .............................................................................49 RECOMMENDATIONS ..................................................................................................50 4. Maximize the Contributions of the Management and Operating (M&O) Organizations to the Safe, Secure Execution of the Mission ....................................65 CHALLENGES ..............................................................................................................65 v Breakdown of the Federally Funded Research and Development Center Model...........................................................................................................68 Unclear Responsibilities for Managing Operations at the Operating Sites .......69 Insufficient Influence of the M&O Parent Organizations’ Cultures .................70 Costly and Ineffective Transactional Oversight ................................................71 Contract Requirements and Performance Metrics that Divert Attention and Resources from Mission Execution .............................................................76 RECOMMENDATIONS ..................................................................................................77 5. Strengthen Customer Collaboration to Build Trust and a Shared View of Mission Success .........................................................................................................83 CHALLENGES ..............................................................................................................83 Lack of Effective Joint DOD-DOE Planning and Budget Coordination ..........84 Lack of DOD-DOE Information Sharing and Trust ..........................................85 Weak Processes for Interagency Coordination and Tasking .............................86 RECOMMENDATIONS ..................................................................................................90 6. Conclusion .................................................................................................................95 REFORM IS NEEDED ACROSS THE NUCLEAR ENTERPRISE ...........................................95 IMPLEMENTATION OF THE PANEL’S RECOMMENDATIONS ...........................................95 APPENDICES Appendix A Charter of the Congressional Advisory Panel on the Governance of the Nuclear Security Enterprise .....................................................................................101 Appendix B Panel Members ............................................................................................105 Appendix C Proposed Statutory Changes ........................................................................113 Appendix D Testimony, Site Visits, and Interviews........................................................141 Appendix E Alternative Structural Models ......................................................................147 Appendix F Benchmarking ..............................................................................................149 Appendix G References ...................................................................................................155 Appendix H Acronyms ....................................................................................................159 vi FIGURES Figure 1. NNSA’s Interrelated Missions .............................................................................2 Figure 2. The NNSA Weapons Complex ............................................................................5 Figure 3. Current Timeline for NNSA Life Extension Activities ......................................13 Figure 4. Congressional Appropriations Delays, FY01–FY14 ..........................................14 Figure 5. Current Department of Energy Organization .....................................................33 Figure 6. Current and Proposed Resource Control for the B61 LEP (Sandia Example) ...60 Figure 7. Kansas City Plant, NNSA, and National Safety Trends .....................................74 Figure 8. The Interagency Work (IW) Approval Process ..................................................88 TABLES Table of Recommendations……………………………………………………...…….. xix Table 1. Major Components of the U.S. Nuclear Enterprise ...............................................4 Table 2. Proposed Departmental Roles and Authorities ....................................................29 Table 3. Criteria for Success in High-Reliability, High-Technology Organizations .........38 Table 4. Field Office Personnel Comparisons ...................................................................76 Table 5. Interagency Work (IW) by Site (FY13) ...............................................................87 vii Executive Summary The course to improve the nation’s nuclear security enterprise seems clear…and the National Nuclear Security Administration has not been on it. –Testimony to the panel (unattributed) The Congressional Advisory Panel on the Governance of the Nuclear Security Enterprise was tasked by the U.S. Congress to examine the mission, organization, and management of this enterprise and consider alternative governance models. The panel notes from the outset that there is no question as to the efficacy of the nuclear deterrent for the foreseeable future.