FAS | Intelligence | GAO Reports |||| Index | Search | Join FAS --------------------------------------------------------------------------- [Image] Defense Networks: Management Information Shortfalls Hinder Defense Efforts to Meet DISN Goals (Letter Report, 07/30/98, GAO/AIMD-98-202). Pursuant to a congressional request, GAO reviewed the Department of Defense's (DOD) efforts to implement the Defense Information Systems Network (DISN), focusing on: (1) those DOD long-haul telecommunications networks operating outside of the common-user DISN; (2) DOD's progress in implementing its policies for managing DISN; and (3) DOD's progress in developing performance measures for DISN, which DOD agreed to do in response to GAO's previous review of the DISN program. GAO noted that: (1) although DOD has been implementing the DISN program for 7 years, numerous networks continue to exist without the Defense Information Systems Agency's (DISA) knowledge; (2) GAO's survey found that the military services are operating at least 87 independent networks that support a variety of long-haul telecommunications requirements; (3) the services reported costs on 68 of these networks totalling more than $89 million annually; (4) DOD's inability to restrict the number of networks operating across the department stems from its failure to implement basic telecommunications management policies established at the beginning of the DISN program and its failure to develop objective performance measures for the program; (5) DISA has not developed a comprehensive inventory of telecommunications networks throughout DOD nor have the military services developed inventories of their own networks; (6) DISA has not reported on telecommunications acquisitions, trends (volumes and types of traffic) and costs throughout DOD, and it lacks the data to develop such reports; (7) DOD has not effectively enforced the use of common-user services, nor were Assistant Secretary of Defense for Command, Control, Communications, and Intelligence (ASD/C3I) officials clear on how enforcement would occur; (8) DOD has only recently begun to implement an interim waiver process to exempt DOD components from using common-user networks--a final process has yet to be implemented; (9) DOD has not developed performance measures for the DISN program even though it agreed with GAO's previous report that these measures were essential to ensuring DISN was efficiently and effectively managed; (10) by not implementing the above, DOD lacks the basic management controls to ensure that it can achieve its goal for an interoperable and cost-effective telecommunications environment; (11) specifically, it lacks a foundation for identifying stovepiped and redundant networks that are not interoperable and cannot share information, and replacing them with mandated common-user services; it lacks a basis for maximizing the efficiency and cost-effectiveness of DISN; it cannot quantify problems; and it cannot learn from mistakes; and (12) as a result, DOD's stated goals for DISN are at risk, and DOD cannot ensure that DISN is the most cost-effective solution to DOD's telecommunications service requirements. --------------------------- Indexing Terms ----------------------------- REPORTNUM: AIMD-98-202 TITLE: Defense Networks: Management Information Shortfalls Hinder Defense Efforts to Meet DISN Goals DATE: 07/30/98 SUBJECT: Computer networks Command/control/communications systems Defense cost control Defense procurement Military communication Telecommunication Information resources management Strategic information systems planning Telecommunication equipment ADP procurement IDENTIFIER: Defense Information System Network Federal Telecommunications System 2000 FTS 2000 ****************************************************************** ** This file contains an ASCII representation of the text of a ** ** GAO report. Delineations within the text indicating chapter ** ** titles, headings, and bullets are preserved. Major ** ** divisions and subdivisions of the text, such as Chapters, ** ** Sections, and Appendixes, are identified by double and ** ** single lines. The numbers on the right end of these lines ** ** indicate the position of each of the subsections in the ** ** document outline. These numbers do NOT correspond with the ** ** page numbers of the printed product. ** ** ** ** No attempt has been made to display graphic images, although ** ** figure captions are reproduced. Tables are included, but ** ** may not resemble those in the printed version. ** ** ** ** Please see the PDF (Portable Document Format) file, when ** ** available, for a complete electronic file of the printed ** ** document's contents. ** ** ** ** A printed copy of this report may be obtained from the GAO ** ** Document Distribution Center. For further details, please ** ** send an e-mail message to: ** ** ** ** ** ** ** ** with the message 'info' in the body. ** ****************************************************************** Cover ================================================================ COVER Report to the Ranking Minority Member, Committee on Governmental Affairs, U.S. Senate July 1998 DEFENSE NETWORKS - MANAGEMENT INFORMATION SHORTFALLS HINDER DEFENSE EFFORTS TO MEET DISN GOALS GAO/AIMD-98-202 Defense Networks (511368) Abbreviations =============================================================== ABBREV ARNET - Army's Regional Transition Network ASD/C3I - Assistant Secretary of Defense for Command, Control, Communications, and Intelligence DISA - Defense Information Systems Agency DISD - Defense Information Systems Database DISN - Defense Information Systems Network FASA - Federal Acquisition Streamlining Act FTS2000 - Federal Telecommunications System GSA - General Services Administration IP - Internet Protocol ITP - Installation Transition Processing J-6 - Joint Staff for Command, Control, Communication and Computers NAVWAN - Naval Aviation Systems Team Wide Area Network NEWNET - Navy Sea Systems Command's Enterprisewide Network NIPRNET - (N-Level) IP Router Network OASD/C3I - Office of the Assistant Secretary of Defense for Command, Control, Communications, and Intelligence Letter =============================================================== LETTER B-276998 July 30, 1998 The Honorable John Glenn Ranking Minority Member Committee on Governmental Affairs United States Senate Dear Senator Glenn: The military services and Defense agencies have long procured and operated multiple long-haul telecommunications systems to meet their individual mission needs. As a result, Defense's communications environment has been fragmented and redundant. To eliminate costly duplication and improve the effectiveness and efficiency of its communication services, Defense began in 1991 to plan and implement the Defense Information Systems Network (DISN) as the common-user, long-haul telecommunications network for all Defense components.\1 To ensure the success of the DISN program, the Assistant Secretary of Defense for Command, Control, Communications, and Intelligence (ASD/C3I) established policies that (1) directed Defense components to develop comprehensive inventories of their own long-haul telecommunications networks and directed the Defense Information Systems Agency (DISA) to develop a Defense-wide inventory of long-haul networks, (2) directed DISA to report annually on telecommunications services acquisitions, trends, and associated costs, (3) mandated components to use common-user networks--such as DISN or FTS 2000\2 --for long-haul communications, and (4) directed DISA to establish a waiver process to let components procure independent networks when their telecommunications needs could not be met by common-user networks. This report responds to your request that we (1) identify those Defense long-haul telecommunications networks operating outside of the common-user DISN, (2) evaluate the Department of Defense's progress in implementing its policies for managing DISN, and (3) evaluate Defense's progress in developing performance measures for DISN, which Defense agreed to do in response to our previous review of the DISN program.\3 -------------------- \1 A common-user long-haul network is one which provides long-distance communications service to a large, general population of users, rather than being dedicated to a small and specialized community. \2 The Federal Telecommunications System (FTS 2000) program provides long-distance services to the federal government. It is managed by the General Services Administration (GSA). \3 Defense Communications: Performance Measures Needed To Ensure DISN Program Success (GAO/AIMD-97-9, November 27, 1996). RESULTS IN BRIEF ------------------------------------------------------------ Letter :1 Although Defense has been implementing the DISN program for 7 years, numerous networks continue to exist without DISA's knowledge. Our own survey found that the military services are operating at least 87 independent networks that support a variety of long-haul telecommunications requirements. The Services reported costs on 68 of these networks totaling more than $89 million annually. Defense's inability to restrict the number of networks operating across the department stems from its failure to implement basic telecommunications management policies established at the beginning of the DISN program and its failure to develop objective performance measures for the program. First, DISA has not developed a comprehensive inventory of telecommunications networks throughout Defense nor have the military services developed inventories of their own networks. Second, DISA has not reported on telecommunications acquisitions, trends (volumes and types of traffic) and costs throughout Defense, and it lacks the data to develop such reports. Third, Defense has not effectively enforced the use of common-user services, such as DISN, nor were ASD/C3I officials clear on how enforcement would occur. Fourth, Defense has only recently begun to implement an interim waiver process to exempt Defense components from using common-user networks--a final process has yet to be implemented. Fifth, Defense has not developed performance measures for the DISN program even though it agreed with our previous report that these measures were essential to ensuring DISN was efficiently and effectively managed. By not implementing the above, Defense lacks the basic management controls to ensure that it can achieve its goal for an interoperable and cost-effective telecommunications environment. Specifically, it lacks a foundation for identifying "stovepiped" and redundant networks that are not interoperable and cannot share information, and replacing them with mandated common-user services; it lacks a basis for maximizing the efficiency and cost-effectiveness of DISN; it cannot quantify problems; and it cannot learn from mistakes. As a result, Defense's stated goals for DISN are at risk, and Defense cannot ensure that DISN is the most cost-effective solution to Defense's telecommunications service requirements. OBJECTIVES, SCOPE, AND METHODOLOGY ------------------------------------------------------------ Letter :2 Our objectives were to (1) identify those Defense long-haul telecommunications networks operating outside of the common-user DISN, (2) evaluate the Department of Defense's progress in implementing its policies for managing telecommunications services, which include: developing a comprehensive inventory of telecommunications equipment and services, reporting on telecommunications services acquired, trends, and costs, mandating the use of common-user networks, and developing a waiver process to grant exceptions from using common-user networks, and (3) evaluate Defense's progress in developing performance measures for DISN to ensure effective and efficient use of the department's telecommunications resources. To determine what long-haul telecommunications networks were planned or operating in Defense, we reviewed applicable Defense directives, instructions, and memorandums regarding the use of common-user networks. We met with officials from DISA and OASD/C3I to assess Defense's progress in developing a comprehensive inventory of telecommunications equipment and services. We met with representatives of the Joint Staff for Command, Control, Communication and Computers (J-6); the Department of Defense's Office of Inspector General; the Army, the Navy, the Marines, the Air Force, the Defense Logistics Agency, and the Defense Commissary Agency to assess component efforts to develop inventories. When we learned that no comprehensive inventories of networks exist at the department or component level, we sent a questionnaire to the four military services requesting that, for every non-DISN long-haul network, they report: the name of the network; functional description; types of telecommunications services supported; estimated annual costs; whether the network was planned or operational, and if planned, its status, life-cycle costs, and whether it was scheduled to be replaced by DISN, and when. We did not independently verify the information provided by the Services. However, we consulted with them to confirm our understanding of their responses and to discuss and ask questions we had about information they provided. Appendix I details the results of our survey. To assess progress in reporting on telecommunications services acquired, trends, and costs, we reviewed applicable Defense directives, instructions, and memorandums and discussed Defense's implementation of these requirements with officials from ASD/C3I and DISA. We analyzed information on costs maintained by DISA and reviewed a recent contractor evaluation of DISA business processes. To assess Defense's progress in enforcing its policy mandate that Defense components acquire services from common-user networks, we reviewed applicable Defense directives, instructions, and memorandums and met with officials from ASD/C3I, DISA, and the Defense components. During these interviews we asked for documentation showing that existing policies on telecommunications management and the use of common-user networks were being implemented and enforced. We obtained and analyzed network plans, requirements, and other acquisition documentation to determine if Defense components were complying with telecommunications management policies. To assess Defense's progress in developing a waiver process to grant exceptions from using common-user networks, we reviewed applicable Defense directives, instructions, and memorandums. We met with officials from ASD/C3I and DISA to discuss their plans to implement an interim waiver process and to develop a strategy detailing how and when independent networks will be replaced by their common-user counterparts. Because the interim process began during our review, we met again with DISA officials in April 1998 to assess the agency's progress to date in granting waivers. To assess Defense's progress in developing performance measures for DISN, we met with officials from DISA and reviewed DISA's draft documentation on the issue, which consisted of draft performance measures for information technology acquisitions. We reviewed the Clinger-Cohen Act of 1996, the Federal Acquisition Streamlining Act of 1994, the Chief Financial Officers Act of 1990, the Government Performance and Results Act of 1993, and the Paperwork Reduction Act of 1995 to determine applicable legislative requirements for developing performance measures. We relied on work we performed in developing our recent guide on performance measurement, Executive Guide: Measuring Performance and Demonstrating Results of Information Technology Investments (GAO/AIMD-98-89, March 1998). In addition, we examined network performance measurements used in the private sector. Our review was conducted from December 1996 through April 1998 in accordance with generally accepted government auditing standards. We obtained written comments from Defense on a draft of this report. These comments are discussed in the "Agency Comments and Our Evaluation" section of this letter and are reprinted in appendix II. BACKGROUND ------------------------------------------------------------ Letter :3 The military services, Defense agencies, and other Defense components have traditionally acquired and operated many unique telecommunications networks to support a range of mission requirements. As a result, Defense components operate many stovepiped telecommunications systems that are not interoperable and cannot share information across functional and organizational boundaries. For example, between 1988 and 1992 Defense reported several interoperability problems including some arising during the Persian Gulf War. Defense components were unable to use their telecommunications networks and information systems to coordinate the issuance of air tasking orders, the use of air space, and the use of fire support for joint operations. To improve the interoperability of its military communications services as well as to reduce costs associated with operating redundant systems, Defense began in 1991 to plan and implement DISN to serve as the department's primary worldwide telecommunications and information transfer network. The DISN strategy focuses on replacing older data communications systems, using emerging technologies and cost-effective acquisition strategies that provide secure and interoperable voice, data, video, and imagery communications services. Under the DISN program, the military services and Defense agencies are still responsible for acquiring telecommunications services for their local bases and installations as well as deployed communications networks. DISA is responsible for acquiring the long-haul services that will interconnect these base-level and deployed networks within and between the continental United States, Europe, and the Pacific. Defense issued a number of policies and directives in 1991 aimed at ensuring that the department could identify and replace redundant networks with DISN and manage DISN efficiently and effectively. These policies -- directed components to develop comprehensive inventories of their telecommunications equipment and services, and DISA to develop a comprehensive Defense-wide inventory; -- directed DISA to report annually on telecommunications equipment acquisitions, trends, and associated costs; -- mandated the use of common-user networks; and -- directed DISA to develop a waiver process to grant exceptions from using common-user networks when these networks could not satisfy Defense components' requirements. In a previous review of the DISN program,\4 we found that Defense was not doing enough to ensure that the program would be managed efficiently and effectively. Specifically, the department lacked performance measures that would help Defense track whether DISA was meeting its objectives, efficiently allocating resources, and learning from mistakes. In response, Defense agreed to establish measures for the program. -------------------- \4 GAO/AIMD-97-9, November 27, 1996. DEFENSE DOES NOT KNOW HOW MANY INDEPENDENT NETWORKS IT IS OPERATING ------------------------------------------------------------ Letter :4 In order for the DISN program to work, Defense needs to know how many networks are operating in the department and what functions they support. This is the foundation for identifying redundant and stovepiped networks and ensuring that they are replaced by DISN. However, Defense lacks the basic information necessary to determine how many networks are operating in the department, what functions they support, or what they cost. In order to estimate the number and cost of networks that are operating outside of DISN, we conducted our own survey, which identified 87 such networks operated by the military services alone. DISA initiated a similar data call to the military services and Defense agencies after we began our survey and identified 153 networks planned or operating throughout Defense.\5 The results of our survey are presented in appendix I and summarized in table 1. Table 1 Independent Networks Reported by Military Services ((Dollars in thousands)) Number of Annual recurring independent costs Service networks reported reported ------------------------------ ------------------ ------------------ Army 37 $25,097 Navy 20 $4,987\a Marine Corps 4 $1,800\b Air Force 26 $57,733\c ---------------------------------------------------------------------- \a The Navy provided annual recurring cost information for three networks. \b The Marine Corps provided annual recurring cost information for three networks. \c The Air Force provided annual recurring cost information for 24 networks. To manage telecommunications cost effectively, Defense must know what networks are operating in the department. In 1991, Defense directed DISA to establish a central inventory of all long-haul telecommunications equipment and services in Defense, and directed the heads of Defense components to do likewise. However, the central inventory was never established and DISA staff are still discovering new networks as they process new telecommunications service requests from Defense components. Defense components have also failed to develop inventories of their own networks. During our initial meetings, Army, Navy, and Air Force officials stated that they could not readily identify all of their networks or describe what their functions are because they do not centrally manage their telecommunications resources. Our experience with the Navy illustrates the depth of this problem. The Navy's initial response to our survey only identified three independent long-haul networks.\6 Other Navy networks known to exist, such as the Naval Aviation Systems Team Wide Area Network (NAVWAN), were not reported in the survey.\7 Navy's headquarters telecommunication staff acknowledged that they were unable to identify all of the Navy's long-haul networks. Careful analysis is needed to determine whether any of the independent networks identified in our survey can or should be replaced by DISN common user services. However, on the basis of our interviews with the military services and our survey results, we were able to determine that overlaps exist between telecommunications services offered by independent networks and services offered by DISN. For example: -- NAVWAN offers its users data communications services using Internet Protocol (IP); similar services are provided by DISA on DISN's Unclassified but Sensitive (N-Level) IP Router Network (NIPRNET). -- The Army's Installation Transition Processing (ITP) Network also offers IP router services similar to those provided by DISN's NIPRNET. -- The Navy Sea Systems Command's Enterprisewide Network (NEWNET, now known as Smart Link) relies on asynchronous transfer mode-based data communications services; similar services are now offered by DISA on a limited basis. -- The Army's planned Regional Transition Network (ARTNET, now known as the Circuit Bundling Initiative) also relies on asynchronous transfer mode-based data services, similar to services offered by DISA. -------------------- \5 DISA's list includes networks operated by Defense agencies as well as those reported by the military services. According to Defense officials, DISA discovers independent networks by various means and has included this information in compiling the list of 153 networks mentioned here. \6 Navy officials subsequently furnished our office with a copy of their input to DISA's data call, which identified an additional 17 networks. \7 Navy officials identified additional networks in the DISA data call that was conducted after our survey. However, this particular network was not reported to either GAO or DISA. DISA DOES NOT HAVE DATA TO DEVELOP REQUIRED REPORTS ON TELECOMMUNICATIONS ACQUISITIONS, TRENDS, AND COSTS ------------------------------------------------------------ Letter :5 To ensure that a common-user network is efficiently and effectively managed, it is essential to closely monitor its acquisitions of telecommunications services, costs, and trends in usage, that is, the volumes and types of traffic it carries. This monitoring helps an agency ensure that the network is properly sized (i.e., neither oversized nor undersized) and offers cost-effective services. Since 1991, DISA has been required to report annually on telecommunications services acquired, trends (volumes and types of traffic), and associated costs throughout Defense. However, it has not done so, and it lacks the data needed to begin developing such reports. For example, as noted previously, DISA lacks a comprehensive inventory of telecommunications equipment and services across the department. Therefore, it cannot effectively report annually on acquisitions. In addition, DISA has not collected data that would help it identify trends in network traffic throughout Defense, which in turn would help it plan for future growth and identify the need for new telecommunications services. This would include data on the number of anticipated users, the nature of business functions requiring telecommunications support, and the potential costs and benefits of new technologies. Further, Defense managers lack reliable cost information on their networks. For example, senior Defense managers rely on Defense components to voluntarily report telecommunications resource requirements during annual budget preparations. But because communications resources are embedded in noncommunications budget items, this process does not allow Defense to identify costs by network or to identify costs for services obtained by users outside of DISA channels. In addition, DISA does not have a cost accounting system or any other effective means of determining DISN's actual operating costs. Until Defense managers have good data on status and trends in telecommunications equipment and services, acquisitions, and costs, they will not have a sound basis for making decisions on reducing telecommunications costs across the department, improving network operations, and reliably determining how efficiently and cost effectively to meet user needs. DEFENSE HAS NOT EFFECTIVELY ENFORCED THE USE OF COMMON USER NETWORKS ------------------------------------------------------------ Letter :6 Under Title 10 of the United States Code, the military services have wide latitude to expend resources to train and sustain their forces.\8 Because the mandate to use DISN restricts this latitude, compliance will only be achieved if Defense institutes an effective enforcement process. Since it began the DISN program in 1991, Defense has never effectively enforced the use of common-user networks. While OASD/C3I staff stated that financial pressure could be brought to bear in the budget process to enforce the mandate, they were unable to articulate how this enforcement would occur. Further, even though the military services have implemented several major long-haul networks during the past 5 years, OASD/C3I staff were unable to identify a single instance in which they formally analyzed the military services' plans for acquiring long-haul networks and insisted that common-user networks be used instead. In May 1997, ASD/C3I issued a memorandum that reiterated Defense policy mandating the use of common-user networks for long-haul telecommunications and reaffirming DISA's role as the manager and sole provider of long-haul telecommunications. Defense is now preparing an update to this memorandum that it states will reflect the department's changing organization and mission, and changes in telecommunications technology. However, unless Defense defines and implements a process to enforce this policy, it will remain ineffective. -------------------- \8 The Secretaries of the Army, Navy and Air Force are responsible for and have the authority to conduct all affairs of their respective services, including organizing, equipping and training their forces. 10 U.S.C. 3013 (Army), 10 U.S.C. 5013 (Navy), and 10 U.S.C. 8013 (Air Force). DEFENSE COMPONENTS ARE IGNORING DISA'S INTERIM WAIVER PROCESS ------------------------------------------------------------ Letter :7 In August 1997, DISA began implementing an interim waiver process which outlined the steps that Defense components must follow to operate independent networks: -- First, operators of all independent long-haul networks must, as of August 1997, request a waiver to policy mandating common-user networks. -- Second, DISA must assess the request and issue a waiver in those cases where telecommunications requirements cannot currently be technically or economically satisfied by DISN or another common-user system such as FTS 2000/2001.\9 Neither of these steps, however, is well-defined. For example, the guidance does not describe data that the required justifications should include or criteria DISA will use in evaluating them. In addition, it does not specify how DISA will determine if components' requirements can be cost effectively satisfied by DISN or FTS 2000/2001. To date, the Services and Defense agencies have largely ignored the interim waiver process. Only 9 percent of the operators of the 131 non-DISA-managed independent networks that DISA identified in its survey has requested a waiver from use of DISN services. -------------------- \9 FTS 2001 refers to the FTS 2000's successor program, currently in the procurement phase. DEFENSE STILL LACKS PERFORMANCE MEASURES FOR DISN ------------------------------------------------------------ Letter :8 Performance measures are central to effectively managing any significant information system undertaking and are required by several federal statutes, including the Federal Acquisition Streamlining Act (FASA) of 1994 and the Clinger-Cohen Act of 1996. For example, under FASA, the Secretary of Defense is required to establish and approve the cost, performance, and schedule goals for major defense acquisition programs and for each phase of the acquisition cycle. Under Clinger-Cohen, agencies must define mission-related performance measures before making information technology investments, and must determine actual mission-related benefits achieved from this information technology, to help ensure an adequate return on investment. For the DISN program, appropriate performance measures would be those that facilitate comparisons between DISN and the independent networks, as well as those that identify potential problems (for example, network reliability, network availability, and measures of customer service, including responsiveness to customer requests for maintenance or for new services). In our 1996 report on the DISN program, we recommended that Defense establish performance measures for DISN. Although it agreed to develop performance measures in response to that review, Defense has never developed measures for the DISN program. Until it does so, Defense will not be able to demonstrate to the Services and other components that DISN is a better choice than their various independent networks, nor will it be able to target and direct management attention to problem areas. CONCLUSIONS ------------------------------------------------------------ Letter :9 In the 7 years that it has been implementing the DISN program and striving to improve telecommunications management in the department, Defense has done very little to implement the basic management controls it believed were needed to ensure success. Numerous independent networks continue to exist without DISA's knowledge; Defense does not have a comprehensive inventory of telecommunications equipment and services; DISA does not collect data and report on acquisitions, trends, and costs; Defense does not enforce the use of common-user networks; Defense has not implemented an effective waiver process that includes the objective evaluation of alternative telecommunications solutions; and Defense has not established good performance measures. As a result, Defense has not achieved its goals for an interoperable telecommunications environment, cannot support any claims that the long-haul networks it operates are cost-effective, and cannot determine which independent long-haul networks should be replaced by common user networks such as DISN or FTS 2000/2001. RECOMMENDATIONS ----------------------------------------------------------- Letter :10 We recommend that the Secretary of Defense direct the Assistant Secretary of Defense for Command, Control, Communications, and Intelligence to ensure that existing policies are clearly defined, documented, and enforced. Specifically, ASD/C3I should -- develop and maintain a comprehensive inventory of Defense's telecommunications equipment and services; -- track acquisitions of telecommunications services throughout Defense, the actual costs of those services, and trends in usage (that is, the volumes and types of traffic that networks carry); -- define and institute an effective process for evaluating the cost-effectiveness of Defense networks and mandating the use of common-user networks for long-haul telecommunications where appropriate. As part of this process, define the criteria that DISA will use to make waiver determinations, including how DISA will measure technical, economic, and customer service factors in granting waivers. In addition, we recommend that the Secretary direct the Assistant Secretary of Defense for Command, Control, Communications, and Intelligence to develop and adopt user-based provisioning, pricing, and performance metrics as minimum performance measures for DISN. AGENCY COMMENTS AND OUR EVALUATION ----------------------------------------------------------- Letter :11 The Senior Civilian Official for the Office of the Assistant Secretary of Defense for Command, Control, Communications, and Intelligence (ASD/C3I) provided written comments on a draft of this report. Defense concurred with all of our recommendations. However, Defense expressed concern that the body of the draft report may lead the reader to believe that Defense has done nothing to implement or enforce its own long-haul telecommunications policies. In its response, the department notes that it has: (1) established the Defense Information Systems Database (DISD) as a comprehensive inventory of long-haul telecommunications networks throughout Defense, (2) clarified existing policy by issuing an ASD/C3I memorandum dated May 5, 1997, that reaffirms DISA's role as the sole manager and provider of long-haul telecommunications systems and services, (3) developed a process for determining how individual telecommunications requirements can best be satisfied, (4) developed a process for granting temporary waivers, and (5) begun the process of establishing performance metrics for DISN. We incorporated additional information in the report to more clearly reflect actions DISA has initiated. However, while these plans are a necessary first step, they must be effectively implemented to bring about real improvements in telecommunications management, which is the focus of the body of our report. Defense recognizes this in its discussion and expresses its commitment to effectively implementing our recommendations. Defense's comments are presented in appendix II. Detailed GAO responses follow in the same appendix. --------------------------------------------------------- Letter :11.1 We will send copies of this report to the Chairman of your Committee; the Chairmen and Ranking Minority Members of the House Committee on Government Reform and Oversight, the House and Senate Appropriations Committees, the House National Security Committee, the Senate Armed Services Committee, and other interested congressional committees; the Secretary of Defense; and the Director of the Office of Management and Budget. Copies will be made available to others upon request. Please contact me at (202) 512-6240 if you or your staff have any questions. Major contributors to this report are listed in appendix III. Sincerely yours, Jack L. Brock, Jr. Director, Governmentwide and Defense Information Systems RESULTS OF SURVEY =========================================================== Appendix I Table I.1 U.S. Army Networks ((Dollars in thousands)) Network Type of service Recurring costs ---------------------------------------- ------------------ ------------------ Army Recruiting Accession Data System data $515 Weather Teletype data 141 Weather Activities data 53 Army/Air Force Exchange Service voice/data 604 National Guard Network (NGNET) data 1,116 DOD Satellite Education Network video 543 Test and Evaluation Analyses Plan data 106 (TEAMUP) Management Information Services data 231 Medical Activities (MEDACT) data 1,249 Army CALS (ACALS) data 120 Command and Control, Misc. (C2) voice/data 321 Intelligence data 7,765 Automated Instructional Management data 50 System Installation Transition Processing data 374 Network Worldwide Military C2 System (WWMCCS) data 226 Engineer Information Systems Network data 33 Defense Intelligence Agency data 499 Communications Defense Technical Information Center data 14 Digital Storage & Retrieval Engineering data 80 Documents (DSRDS) UASREUR Community Automation System data 75 Automatic System for Transportation Data data 353 Army Interoperability Network (AIN) data 859 Admin. Activities-Misc. (not true voice/data 346 network) CC Reserve Forces data 16 Developmental Readiness & Mobilization data 123 System Remote Alarm Intrusion System data 27 Armed Forces Radio/TV Service voice/data 761 Army Training Requirements & Resources data 100 System (ATRRS) Reserve Component Automation System voice/data 987 (RCAS) Army Supercomputer Network data 4,802 Streamlining Information Services data 106 Operations Consolidation (SISOCS) Department of Army Standard Systems for data 149 Depots (DASSD) Scientific and Engineering data 68 TRADOC Decision Support System (TDSS) data 89 USAREUR Data Network data 369 Army Standard Information Management data 398 System Video Teleconferencing Network video 1,428 -------------------------------------------------------------------------------- Table I.2 U.S. Navy Networks ((Dollars in thousands)) Network Type of service Recurring costs -------------------------------- ---------------------- ---------------------- Naval Education & Training data $643 Management Systems Network (NETMSN) Naval Reserve Network data 750 (NAVRESNET) NAVSEA Enterprise Wide Area voice/data/video 3,590 Network (NEWNET/Smart Link) Puget Sound Metropolitan Area voice/data/video \a Network (MAN) Tidewater Metropolitan Area voice/data/video \a Network (MAN) Naval Facilities Engineering data/video \a Command Wide Area Network (NAVFAC WAN) NAVCOM TELCOM Video video \a Teleconferencing NCTS Pensacola Video video \a Teleconferencing Pensacola Metropolitan Area voice/data/video \a Network (MAN) Corpus Christi Video video \a Teleconferencing Corpus Christi Metropolitan Area voice/data/video \a Network (MAN) NCTAMS LANT Det. Video video/data \a Teleconferencing NCTAMS LANT Det. Advanced voice/data/video \a Digital Multiplexer System (ADMS) NCTAMS LANT Det. U.S. Atlantic data \a Command Net (USACONNET) NCTAMS LANT Det. Navy C2 System data \a (NCCS) NCTS NOVA System message \a NCTS Micronet 8 message \a Guam Unclassified Metropolitan data \a Area Network (MAN) Guam Administrative Telephone voice \a Switching System Planned --San Diego Metropolitan voice/data/video \a Area Network (MAN) -------------------------------------------------------------------------------- \a Information on these networks came from DISA's survey which does not include cost data. Table I.3 U.S. Marine Corps Networks ((Dollars in thousands)) Network Type of service Recurring costs -------------------------------- ---------------------- ---------------------- Defense Megacenter Network data $800 Connectivity Marine Corps Data Network (MCDN) data 500 DISN/Banyan Vines Network data 500 Marine Corps Reserve Network data \a -------------------------------------------------------------------------------- \a The Marine Corps did not provide this information or provided insufficient information to determine costs by fiscal year. Table I.4 U.S. Air Force Networks ((Dollars in thousands)) Network Type of service Recurring costs -------------------------------- ---------------------- ---------------------- AFPC Wide Area Network data $4,571 Air Weather Network (AWN) data 12,301 NEXRAD data 2,109 Mystic Star Network Management data 1,560 System Strategic Operations Conference voice/data 568 Network Robust ACC Virtual Network voice/data/video/ 1,979 (RAVN) other Virtual Circuit Switch (VCS) data 1,136 Mission Operations Support voice/data 250 Center (MOSC) AFMC Classified Network (ACN) data 750 Comp Eng Management System data 228 (CEMS) Internet Access data \a Global Positioning System (GPS) data 378 Defense Satellite Program (DSP) data 259 Granite Sentry Air Defense data 1,082 Threat Warning/Attack Assessment data 1,675 (ITW/AA) Launch and Range data 3,026 Missile Alert Facility voice/data 1,453 Communications Strategic Automated Command and data 328 Control (SACCS) Space Surveillance data 683 Air Force Satellite Control data 6,261 Network (AFSCN) Space Air Weather Network (AWN) data 2,125 JCS Alerting Network voice 850 Wheelhouse voice 228 Mystic Star voice/data 22 Northstar voice/data 13,911 Contingency Airborne voice/data \a Reconnaissance System (CARS) -------------------------------------------------------------------------------- \a The Air Force did not provide this information or provided insufficient information to determine costs by fiscal year. (See figure in printed edition.)Appendix II COMMENTS FROM THE DEPARTMENT OF DEFENSE =========================================================== Appendix I (See figure in printed edition.) (See figure in printed edition.) (See figure in printed edition.) (See figure in printed edition.) (See figure in printed edition.) (See figure in printed edition.) The following are GAO's comments on the Department of Defense letter dated July 16, 1998. GAO COMMENTS 1. We acknowledge in this report that ASD/C3I has clarified existing long-haul telecommunications policy by issuing a May 5, 1997, memorandum. We have added information regarding Defense's update of 1991 policy that will reflect changes in technology, organization, and mission. Nevertheless, Defense's actions remain preliminary, and unless that policy is properly implemented and enforced it will remain ineffective. 2. As indicated in the reply, Defense does not maintain a comprehensive inventory of independent long-haul telecommunications networks, and therefore does not know how many networks are operating throughout the department or what functions they support. As Defense notes in its comments, additional guidance and procedures are needed to ensure that all requirements for long-haul telecommunications equipment and services are identified and placed in the Defense Information Systems Database. 3. Defense affirms in its comment what we state in this report, that DISA currently lacks well-defined steps for determining whether a long-haul telecommunications requirement can be most effectively satisfied by a common-user network. We note Defense's plan to develop and employ a standard requirements evaluation model. This model, if properly developed and implemented, could assist Defense in making cost-effective decisions on individual telecommunications requirements. However, the model may not be effective without the cooperation of Defense components, which may choose not to submit their requirements through DISA. The model may also not be effective if other steps mentioned in this report, such as adequate data gathering on telecommunications trends and costs, and use of performance measures, are not taken. 4. Two years ago we highlighted the need for DISN performance measures in a report on the DISN program (GAO/AIMD-97-9, November 27, 1996). We recognize that Defense now intends to take action on our recommendation that it implement user-based performance measures for DISN, and we agree that such metrics should be applied to all long-haul telecommunications. We are unable to make further comment, however, until Defense takes concrete steps to implement these performance measures. MAJOR CONTRIBUTORS TO THIS REPORT ========================================================= Appendix III ACCOUNTING AND INFORMATION MANAGEMENT DIVISION, WASHINGTON, D.C. Franklin W. Deffer, Assistant Director Kevin E. Conway, Assistant Director Mary T. Marshall, Senior Information Systems Analyst Cristina T. Chaplain, Communications Analyst *** End of document. ***