The Department of Energy (Energy) spends 90 percent of its annual budget—which totaled $27 billion for fiscal year 2011—on the contractors that carry out its diverse missions and operate its sites nationwide. These management and operating contractors—which include corporations, universities, and others—also provide sites’ support functions such as procuring needed goods and services; recruiting and hiring workers; managing health and retirement benefits; and maintaining facilities and infrastructure. GAO reviewed support functions at the 7 national laboratory and nuclear production and testing sites overseen by the National Nuclear Security Administration (NNSA) and the 10 national laboratories overseen by the Office of Science. The total annual cost of support functions at NNSA and Office of Science sites increased from about $5.0 billion in fiscal year 2007 to about $5.5 billion (nominal) in fiscal year 2009. Previously, GAO has recommended that Energy take actions to manage cost growth in certain support functions and related costs. Since that time, however, some of these costs have continued to grow.
Congress created NNSA as a semi-autonomous agency within the Department of Energy in 1999 (Title 32 of the National Defense Authorization Act for Fiscal Year 2000, Pub. L. No. 106-65, § 3201 et seq.).
Over the same period, the sites’ total annual support function costs increased from about $5.0 billion to about $5.3 billion in constant 2007 dollars. As discussed in GAO’s January 2012 report, Energy sites’ support costs for more recent years are not fully known, because Energy changed its data collection approach in 2010 to improve the quality of its cost data. Also, Energy has not yet fully implemented a quality control process for these more recent data but intends to do so in fiscal year 2012.
Because each site has historically had its own unique contractor—as part of Energy’s longstanding model for research and nuclear weapons production—the sites have also differed in how support functions are organized and carried out. This decentralized, or fragmented, approach has sometimes led to inefficiencies in support functions. For example, sites have long procured goods and services independently of each other, sometimes buying from the same vendors in an uncoordinated manner and limiting Energy’s ability to leverage sites’ buying power. Similarly, Energy’s fragmented approach to prioritizing and funding upgrades to sites’ aging facilities and infrastructures has made it difficult to leverage the resources needed to modernize its facilities. For example, some facilities cannot support vibration-free environments or other requirements of modern research tools.
As GAO reported in January 2012, Energy and contractors at its 17 NNSA and Office of Science sites have been carrying out a variety of efforts, since 2007, to streamline and reduce the costs of sites’ support functions. For example:
In addition, GAO found that contractors at sites have undertaken their own streamlining and cost-reduction efforts, ranging from automating hiring, training, or other human resources activities to reducing employee health care and pension costs. As GAO reported in September 2011, while not all site-led efforts were aimed at reducing inefficiencies of Energy’s fragmented approach, some of the efforts appeared to incorporate key practices for streamlining and improving the efficiency of federal programs and functions identified.
While these efforts have been made, there are additional opportunities to streamline support functions. For example:
Energy and contractor officials noted that further assessment of the appropriateness of these and other potential efforts is warranted, as each can present challenges. For example, in response to the Deputy Secretary’s August 2010 memo, the Office of Science expressed reluctance to implement a more centralized approach to procurement, citing the efficiencies of its current approach. Others in Energy noted, however, that similar concerns were expressed during prior streamlining efforts, including NNSA’s own implementation of a centralized approach, and can be addressed through further assessment. In addition, a centralized approach may not always be more efficient or effective, but that determination can benefit from further assessment. For example, as GAO reported in September 2011, the anticipated cost savings from NNSA’s proposal to consolidate management and operating contracts for two of its sites were uncertain, and NNSA’s own analysis suggested that efficiencies could instead be achieved under its existing contracts through improved management practices.
Energy and contractors at NNSA and Office of Science sites have taken steps, and are identifying further opportunities, to streamline support functions and reduce costs. As fiscal environments become more constrained, Energy needs to ensure that streamlining efforts will be effective. This includes understanding when it is appropriate to use a more centralized approach and addressing any challenges to further streamlining. As a result, GAO recommended in January 2012 that the Secretary of Energy should
The information in this analysis is based primarily on findings from the products listed in the related GAO products section. GAO reviewed documents and data and spoke with Energy, NNSA, and Office of Science officials and with contractors at eight sites—the four largest sites by budget from NNSA and Office of Science.
GAO provided a draft of its January 2012 report to Energy for review and comment. Energy generally agreed with the findings and recommendations from the report, and had no further comments. As part of its routine audit work, GAO will track the extent to which progress has been made to address the identified action and report to Congress.
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Support function costs at NNSA and Science sites for fiscal years 2007 through 2011 are not fully known because DOE changed its data collection approach beginning in 2010 to improve its data and, as a result, does not have complete and comparable cost data for all years. In fiscal years 2007 through 2009, total support costs for NNSA and Science sites grew from $5 billion to about $5.5 billion (no...
Given continuing budget pressures combined with the focus on performance envisioned in the GPRA Modernization Act of 2010, federal agencies need to identify ways to operate more efficiently. GAO was asked to (1) describe selected initiatives that federal departments are implementing to achieve efficiencies; and (2) identify key practices associated with implementing these initiatives, as well as s...
The National Nuclear Security Administration (NNSA)--a semiautonomous agency within the Department of Energy (DOE)-- proposed in March 2010 a new acquisition strategy that includes consolidating the management and operating (M&O) contracts for two of its eight sites--the Y-12 National Security Complex (Y-12) in Tennessee and the Pantex Plant in Texas--and consolidating all construction projects fo...
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