Chapter 3
The Defence reviews and fluid reform agenda
3.1
This chapter provides an overview of the Defence reviews as defined in
the inquiry terms of reference. It details the respective reviews, their
findings and recommendations whilst also providing a summary of the many other
reviews that have been conducted or which are currently underway. The chapter
concludes by acknowledging the fluid reform agenda and its impact on the
Defence procurement process.
Background to the Kinnaird, Mortimer, Pappas and McKinsey reviews
Kinnaird Review
3.2
In December 2002, Malcolm Kinnaird, AO was commissioned to conduct a
review of the 'problems associated with major Defence acquisition projects'.
Kinnaird and his team submitted their Report of the Defence Procurement Review
or Kinnaird Review on 15 August 2003 and the report was subsequently released
on 18 September 2003. The review made ten recommendations and concluded that as
there is no single cause of the failures in the development of capability and
the acquisition and support of defence equipment, there is no single remedy to
ensure that the problems will not recur.[1]
3.3
Kinnaird set in train a reform agenda that provided a key reference
point for future reviews. The main thrust of his recommendations were directed
at:
- improving the quality of information to inform decision-making,
especially government;
- strengthening the capability definition and assessment function;
- developing reliable whole-of-life costs which are taken into
consideration throughout a project's life;
- recognising off-the-shelf acquisitions as an integral part of
procurement considerations;
- attracting project management skills to DMO;
- improving the accountability of Capability Managers; and
-
transforming DMO into a performance driven organisation.
3.4
The Kinnaird Review recommendations led to a number of reforms including
the two-pass approval system and creation of the Capability Development Group
(CDG) headed by a three-star officer or equivalent. Lieutenant General David
Hurley was appointed Chief of the CDG in December 2003 whilst the Defence
Procurement Advisory Board was established in March 2004. Kinnaird's
recommendations also led to the creation of the Defence Materiel Organisation
(DMO) as a prescribed agency under the Financial Management and
Accountability Act 1997.[2]
The Minister for Defence, the Hon. Stephen Smith MP (the minister) stated in
May 2011 that together with these initiatives, most of the Kinnaird reforms
have been implemented and have had a 'positive impact'.[3]
Mortimer Review
3.5
In May 2008, the government commissioned David Mortimer, AO to conduct a
formal evaluation into the effectiveness of ongoing reforms in the DMO
implemented following the 2003 Kinnaird review. Mortimer and his team were also
asked to provide advice on identifying further potential reforms to the
acquisition and through-life support of defence equipment. The Defence
Procurement and Sustainment Review or Mortimer Review was tabled in
Parliament on 23 September 2008. The 46 recommendations of the Mortimer Review were
directed at making the DMO 'more business-like and imposing commercial
discipline on the defence procurement and sustainment processes'.[4]
3.6
Both the Kinnaird and Mortimer reviews considered Defence procurement
through the ADF capability life cycle from the initial stages of strategic
assessment and where a need is identified to address a current or potential
capability gap. Both reviews make a series of findings and recommendations
directed at strengthening the respective phases as well as the overall life
cycle. For the committee's purposes, it will focus on three main phases of the
capability life cycle—strategic analysis, needs and requirements; acquisition;
and sustainment.[5]
3.7
The Mortimer Review recognised that the implementation of Kinnaird's
recommendations resulted in wide-ranging reform and improvement in the
capability development process in the Defence and the acquisition process in
DMO.[6]
However, Mortimer refuted claims that the two-pass process implemented
following the Kinnaird Review had solved all the problems. In evidence to
support this position, he drew on two examples including the acquisition of
tactical unmanned aerial vehicles (Project JP 129) where he found continued
problems of scope creep and poor commercial practice leading to the termination
of the contract. In the second example concerning Phase 3 of Project Land 121,
Mortimer found that scope creep and poor capability definition and commercial
practice resulted in the need to refresh the tender.[7]
3.8
Mortimer identified five principle areas of concern ranging from:
... inadequate project management resources in the Capability
Development Group, the inefficiency of the process leading to government
approvals for new projects, shortages in DMO personnel, to delays due to
inadequate industry capacity and difficulties in the introduction of equipment
into full service.[8]
3.9
Of the 46 Mortimer recommendations, the government agreed in full to 42 and
in part to three. On 6 May 2011, the minister stated that whilst many of the recommendations
had been implemented, some had yet to be fully implemented and that Defence
would accelerate the implementation of all outstanding agreed Mortimer
recommendations including:
- Project directives issued by the Secretary of Defence and Chief of
the Defence Force (CDF) to ensure Defence acquisitions progress according to
government direction;
- Benchmarking all acquisition proposals against off-the-shelf
options where available.[9]
Pappas Report
3.10
On 30 July 2008, Mr George Pappas was appointed to lead an independent
audit of the Defence budget. Known as the Pappas Report, the 2008 Audit of
the Defence Budget report was delivered to the government in April 2009.
The objective of the audit was to advise ministers on the efficiency and
effectiveness of and future risks associated with the Defence budget and to make
recommendations to improve arrangements for managing the Defence budget.[10]
The audit contains over 120 recommendations of which the majority are to be
delivered through the Strategic Reform Program (SRP discussed below).[11]
Mr Pappas serves as the chair of the Defence Strategic Reform Advisory Board
which is responsible for overseeing the SRP.[12]
3.11
The McKinsey Report (2010) is a benchmark study undertaken in 2008 and
2009 comparing the performance and productivity of defence ministries
worldwide. The report ranked Australia near the bottom of an international
league table of 33 countries on defence performance and equipment acquisition,
finding Australia equal last with the US on defence spending.
3.12
According to then Defence Secretary, Dr Ian Watt, McKinsey published the
report without consulting Defence which he noted was 'at complete odds with the
advice that McKinsey's had given us in relation to the defence budget audit' or
Pappas Report which was conducted by McKinsey Australia. According to Dr Watt,
the Defence budget audit had considered a number of benchmarks which would have
put Australia in the realm of 'world best practice'. Further, McKinsey
International had published the report without the benefit of input from
McKinsey's Australian practice. McKinsey International subsequently sent a
letter of apology to Dr Watt and then CEO of DMO, Dr Stephen Gumley.[13]
3.13
McKinsey subsequently republished the article with Australia withdrawn
from the list and the statement 'Australia has been removed because the data is
incorrect for Australia and the methodology does not apply to Australia'.[14]
Implementing and monitoring Defence reviews recommendations
3.14
Defence informed the committee that the majority of the recommendations
of the respective reviews (Kinnaird, Mortimer, Pappas) have been agreed to and
implemented. Given the large number of procurement projects underway, Defence
observed, however, that the effects of the respective reviews 'which primarily
affect new projects, take some time to impact on the procurement system as a
whole'.[15]
3.15
In terms of the mechanism to monitor the implementation of the reforms
and recommendations of the respective reviews, Defence held that it has
established the following bodies:
- In relation to the Kinnaird Review, the creation of a Defence
Procurement Advisory Board to support the establishment of the DMO and report
to the Ministers for Defence and Finance and Deregulation at regular intervals
on the implementation of the Kinnaird Review recommendations.[16]
-
In relation to the Mortimer Review, the Strategic Reform Program
(SRP) is delivering reform initiatives through a number of 'streams':
The SRP incorporates the Mortimer
Review reforms as one of the streams. SRP reforms target all stages of the
capability life cycle and are designed to enhance alignment between strategic
planning and capability development. The SRP also contains recommendations to
improve the procurement process and increase the effectiveness and efficiency
in the maintenance of defence capability. Reform streams that will contribute
to these objectives are the Strategic Planning, Capability Development,
Mortimer, and Smart Sustainment streams.[17]
- In relation to the Pappas Review, the recommendations are being
delivered through the SRP.[18]
Strategic Reform Program
3.16
The SRP was announced in 2009 as a ten-year plan to deliver gross
savings of approximately $20 billion. As part of the SRP, reforms and
initiatives in the areas of accountability, planning and productivity, directed
at improving management and at greater efficiency and effectiveness, were
designed to deliver such saving that would in turn:
...be reinvested to deliver stronger military capabilities,
to remediate areas where there has not been enough funding in the past and to
modernise the Defence enterprise 'backbone', all of which are essential to
support the fighting force.[19]
3.17
The SRP will be delivered through 15 reform streams each to implement a
program of reform. As previously noted, implementation of the Mortimer Review
recommendations is one of the SRP streams. Defence noted that as of 18 May
2011, 32 of the process Mortimer recommendations had been fully implemented
with an additional two transferred to the SRP Stream whilst 11 recommendations
remain 'on track' for implementation in 2012.[20]
3.18
According to Defence, some streams of the SRP will deliver direct
savings that have been earmarked for reinvestment in Force 2030 whilst others
will put downward pressure on costs through improved governance, planning and
processes. Streams that drive more efficient and effective outcomes but do not
have cost reductions attached to them include Strategic Planning; Capability
Development; Procurement and Sustainment (Mortimer); Preparedness, Personnel
and Operating Costs; Intelligence; Science and Technology; Estate; and Output
focused budget model.
3.19
Streams that drive more efficient and effective outcomes and have cost
reductions directly attached to them include Smart Sustainment; Non-Equipment
Procurement; Workforce and Shared Services; Information and Communications
Technology; Reserves; Logistics; Defence Savings Program.[21]
3.20
According to Defence, improved processes and activities continue to be
developed under the SRP reform streams, the Mortimer (Procurement and
Sustainment) Reform Stream and the Capability Development Reform Stream. These
reforms have been captured in the promulgation of an updated Defence Capability
Development Handbook (DCDH) to 'record the improved processes and governance
arrangements and provide guidance on capability development documentation'.[22]
3.21
As part of a comprehensive second report, the committee intends to
consider what Defence means by 'improved governance' and 'governance arrangements'
in the context of the SRP.
Defence reforms announced in 2011
3.22
A number of additional reforms were announced in 2011 and include
reforms to:
- project management accountability (announced on 6 May);
- strengthen the Projects of Concern process (announced 29 June);
- the disposal of military equipment (announced 29 June);
- strengthen Australian industry (announced 29 June);
- support ship repair and management practices—implementing
recommendations from the Plan to Reform Support Ship Repair and Management
Practices or Rizzo Report (announced 18 July);
-
improve accountability in Defence—implementing the
recommendations of the Review of the Defence Accountability Framework or
Black Review (announced 9 August).
3.23
The 'project management accountability reforms' which are also called
the 'Accountability and Procurement' reforms by the Minister for Defence,[23]
entail implementation of outstanding Kinnaird and Mortimer recommendations
including that of benchmarking proposals against off-the-shelf options.
However, they also include additional reforms set to build on the Kinnaird and
Mortimer recommendations. Focused on improving project management and
minimising risk at the start of a project whilst identifying problems early,
they include the:
- introduction of a two-pass approval system for minor capital
projects valued between $8 million and $20 million;
-
implementation of an Early Indicators and Warning system;
- expansion of the Gate Review system; and
-
introduction of Quarterly Accountability Reports.[24]
3.24
On 19 July 2011, the Minister for Defence detailed the government's
reform agenda for Defence and the initiatives which are either linked to or in
addition to the ongoing SRP program. The reforms, additional to those mentioned
above, include:
- Procurement and Sustainment—focused on reforms to the Defence
budgeting process, capability acquisition and development, and to the
maintenance and sustainment of equipment in service;
- The Defence Budget—improving and reforming Defence's planning and
budgeting processes;
- Defence Capability Plan (DCP)—including efforts to reduce the
level of over-programming in the DCP;
- Linking the DCP to Defence Planning Guidance—linking updates of
the DCP to the Defence Planning Guidance to ensure that information provided to
industry is based on the latest national security tasks;
-
Force Posture Review—to examine strategic and security
considerations and assess the impact of the ADF's Force Posture of these considerations
and make recommendations in relation to the basing options across Australia.[25]
3.25
The reviews yet to be completed and the reforms that flow from them should
also be noted. These include the government's response to the Coles Review of
the Sustainment of Australia's Collins Class Submarines and the Shared Services
Review.[26]
Other relevant reviews and analysis
3.26
There are a number of other reviews of Defence which have addressed the
issue of Defence procurement which are not only pertinent to this inquiry but
also produce recommendations for Defence reform.
3.27
As part of its response to the Mortimer Review, the government stated
that the Australian National Audit Office (ANAO) would be invited to audit the
progress of reform at nine and 18 months post-commencement and report its
findings against the agreed plan.[27]
Further, the DMO and ANAO Major Projects Report (MPR) which is published
annually, provides a performance overview of selected major defence capital
acquisition projects managed by the DMO. The Parliamentary Joint Committee on
Public Accounts and Audit (JCPAA) is charged with reviewing the MPR, making
findings and recommendations for improvement. In addition, ANAO audit reports
often include recommendations to Defence. The most recent Performance Audit
Report 57 titled Acceptance into Service for Navy Capability serves as
an invaluable resource on matters of Defence procurement and makes eight
recommendations designed to improve Defence's management of the acquisition and
transition into service of Navy capability.[28]
3.28
Other reviews conducted outside the Defence establishment include the
committee's own 2003 Report on the inquiry into materiel acquisition and
management of Defence. The JCPAA and the Joint Committee on Foreign
Affairs, Defence and Trade have both produced reports of relevance to this
inquiry with recommendations to government generally and Defence specifically
in relation to improving processes.
3.29
Finally, the analyses of Defence procurement matters provided by the
Australian Strategic Policy Institute (ASPI) are pertinent to this inquiry.
Defence has in the past commissioned ASPI to provide advice on matters such as
the Public Defence Capability Plan and to make recommendations for improvements
and reforms. These recommendations are also a matter for implementation by
Defence.
Stocktake of reforms
3.30
In 2003, Kinnaird argued that further fundamental reform was needed to
ensure that the ADF receives the capabilities it expects according to the
schedule required by the government. Five years later, Mortimer concluded that
reform in acquisition and sustainment should continue in order to extract
maximum benefit across the capability systems life cycle. In 2009, Pappas found
the need for 'fundamental reform'.[29]
Recently Rizzo and Black added to the reform program. Indeed Rizzo found, among
other things, that Navy had 'poor whole-of-life asset management,
organisational complexity and blurred accountabilities, inadequate risk
management, poor compliance and assurance, and a "hollowed-out" Navy
engineering function.'[30]
Black pointed to poor outcomes in Defence including delivery failures for
capability projects and poor or inappropriate procurement decision-making.[31]
3.31
As part of its stocktake, the committee wrote to the Department of Defence
(department) on 6 July 2011 requesting a schedule showing the progress made on
implementing the recommendations made in recent defence reviews with particular
focus on the Kinnaird, Mortimer and Pappas reviews. The department responded on
21 July, but the committee was disappointed with the information provided and again
wrote to the department and DMO on 22 August 2011.
3.32
In its letter, the committee informed the department that, while
helpful, the information did 'not always convey a clear picture of what was
being achieved'. It noted that the department's response provided no
information in relation to the relevant Pappas recommendations. Further, that
while the term 'fully implemented' was appropriate to describe some of the
Mortimer recommendations, for others the term simply raised more questions. The
committee explained that it would prefer a more informative response from Defence
suggesting that a brief comment be added to each recommendation 'to put beyond
doubt what is meant by fully implemented'.
3.33
On 4 October as part of a Defence Organisation response, the department
provided the committee with an updated version of progress on the
implementation of its reform program (see appendix 4). The committee notes,
however, that with a number of recommendations made in the Mortimer review, Defence
has indicated that implementation was complete. Yet, in the committee's view,
some of the recommendations would form part of a continuous improvement process
requiring constant attention, particularly those relating to developing the
skills base. The committee is not convinced that Defence's account of the
progress made in implementing its reform program has the coherence and
foresight need to achieve lasting success. As an accountability measure, the
report provided to the committee on the implementation of the reforms failed.
3.34
Furthermore, Defence informed the committee that in light of the Black Review's
findings of challenges and weakness in Defence's end-to-end management of
capability, 'a comprehensive end-to-end business process review of Defence's
capability management will be undertaken'.[32]
The committee has no insight into what this review is supposed to achieve and
unfortunately again the focus appears to be on process.
Concerns regarding reform agenda
3.35
Many submitters maintained that the reform agenda has improved the
capability development and acquisition process. Indeed, the findings and
recommendations of such reviews and reports have led to what ANAO describes as 'rapid
organisational change to procurement process, practice and organisational
structures'.[33]
These include the strengthening of existing processes, introduction of new
processes, adjustment of high level command and oversight, the establishment of
new committees and review boards, and the rearrangement of organisational
charges. However, there remain two key concerns regarding the direction of the Defence
reform agenda. First, that the reforms are focused on process at the expense of
fundamentals and second, that constant reform has created fluidity rather than effect.
Focus on process rather than fundamentals
3.36
One of the major concerns raised in relation to the implementation of
the reform agenda is that it has resulted in the addition of more process to an
already process-bound organisation. Air Marshal Binskin noted that whilst each
one of the respective reviews has increased the 'transactional costs; it has
added to the process, not necessarily streamlined' it.[34]
Air Commodore (Retired) Bushell noted congenital problems in Defence included
an inability to manage complex projects and particularly those with any degree
of system development or integration as well as difficulties in providing
in-service support on time. In his view, they stem:
...directly from an entrenched, process-driven, contract
centric approach to project management, rather than employing sound Project,
Systems and Equipment Engineering management systems and procedures developed
especially for controlling technology projects. The situation that has
persisted for more than a decade is an inevitable consequence of the 'not
thought through' de-skilling and downsizing of the Services and the structural
changes imposed by the Defence Reform Program (DRP) and Commercial Support
Program (CSP).[35]
3.37
The concern raised by submitters is that Defence has focused its efforts
on implementing the reforms in relation to procurement processes without
addressing the 'fundamental Defence, DMO and Service organisational structures,
accountabilities and resource distribution'.[36]
In this regard, Air Commodore (Retired) Bushell stated:
No study has ever been made of the proper allocation of
responsibility, accountability, and the division of resources between the
Services and the Defence bureaucracy where the major problems have arisen and
been left to fester for over two decades.[37]
3.38
Other submissions to the inquiry noted this focus on administrative
process rather than the management of outcomes and employment of necessary
feedback loops. As previously noted, such feedback would otherwise provide for
an accurate understanding of the status of a project and enable the effective
implementation of Defence reforms.
3.39
Some submitters raised concerns that the SRP is targeting process rather
than addressing the critical issue of governance. As highlighted by a number of
witnesses, the existing process is considered adequate but it is not applied
consistently. The question for the committee is why the gap between procedure
and practice persists. Evidence suggests that it relates to poor governance and
a lack of internal checks and balances upheld by suitably qualified competent
and independent personnel. In its next report, the committee intends to explore
this evidence.
3.40
Other unintended consequences of the reforms which ignore the
fundamentals go to the heart of the dysfunction within Defence. These include
the low engineering skills base brought about by outsourcing as a consequence
of the Commercial Support Program introduced in 1991 and the convoluted process
and lack of clarity regarding responsibility which are unintended consequences
emanating from the shared service reforms of 2009. This position is articulated
by Air Commodore (Retired) Bushell who stated that:
The problems being encountered have been institutionalised
firstly by the fundamental models used in the management and governance of the
acquisition bureaucracy, and secondly by the practice of replacing technologically
skilled engineering professionals with technologically unskilled generalists.
That is, the imposition of administrative process over project and systems
engineering management. For more than a decade, the approaches adopted have
been shown not to work, and can not be made to work.[38]
3.41
In this regard, Dr David Robinson of Engineers Australia noted that 'if
we have wrong decisions made at the beginning, inappropriate technical
decisions, the best management may well deliver a lemon, but that is not what
you want'.[39]
3.42
The committee is concerned that implementation measures that simply look
at a further change to process will not, of themselves, be successful. The
committee underlines its firm view that the focus on improving process will not
solve deeper, fundamental problems. The critical question is why no one is
probing these underlying issues.
Effectiveness of reform agenda
3.43
Air Marshal Binskin observed that one of the problems that arises is
that 'we are changing every five years but the projects take eight years to
deliver' and that:
We are inside our own decision loop sometimes with the
reviews rather than letting them mature for a little bit and refine the
processes that you need to be able to run that system.[40]
3.44
The continual cycle of reviews and reports into Defence from which
findings and recommendations are acted upon has led to an ongoing and fluid
reform process. Given the frequency of such changes and average lifespan of
major acquisition projects, ANAO noted that 'several changes to organisational
structures and processes can occur over the life-cycle of a single project
making it difficult to assess the effectiveness of any single change'.[41]
The outstanding question for the committee, therefore, is what is the
underlying factor that has prevented these accumulated changes from being
effective? Witnesses to the inquiry indicated that they thought it was the
extensive committee structure and interfaces between the many 'groups' within
Defence that have an input (or indeed control) elements of the FIC that by
definition are part of capability. It should be noted in this regard that the
efficacy of governance over the procurement process cannot be divorced from the
efficacy of governance across Defence because of the FIC interfaces.
3.45
The ANAO also recognised that managing projects in an 'environment of
successive, significant organisational and management reforms can add to the
complexity of the task'. It noted that given the long lifespan of most Defence
acquisition projects, the full benefit of performance improvements expected
from a reform are 'only likely to be realised in projects that are started
following the introduction of the reform and arguably, only once the reform has
been fully implemented and consolidated within Defence's practices'.[42]
Other submitters to the inquiry raised concerns about the unintended
consequences of the series of reforms to which Defence has been subject which
have created a context of fluidity and appearance of constant change. The
result is a procurement process that has been subjected to and continues to
undergo numerous changes to the point where mapping the process at any given
time or providing a 'snapshot' of how the process works is a task made almost
impossible.
3.46
These are critical matters that the committee intends to focus on in its
second and substantive report.
Defence Capability Development
Handbook
3.47
The 2011 Defence Capability Development Handbook (DCDH) builds on
the 2006 Defence Capability Development Manual (DCDM) to which much of
the evidence before the committee refers. According to Defence, the DCDH takes
into account the recommendations of the Strategic Reform Program, Mortimer
Review, and the 2009 ANAO Audit of The Planning and Approval of Major Capital
Equipment Projects. Defence stated the following in relation to the DCDH:
The DCDH provides guidance, and is the template of the
process for the conduct of capability development in Defence. It is not in
itself a policy document.[43]
3.48
Four interim versions of the DCDH were produced between February 2010
and March 2011 before the current August 2011 version was published. It
remains, however, unavailable to the public. The DCDH was released before the
Rizzo and Black reviews and does not, therefore, take into account the
recommendations, reforms and developments emanating from those reviews.[44]
Air Marshal Harvey noted that this was one of the challenges faced by Defence
as there are 'always reviews and reforms going on' and that Defence would
consider whether an update to the DCDH is required at the appropriate time.[45]
Committee view
3.49
The committee is concerned that when implementing the ongoing and
seemingly endless reform agenda, Defence's focus has produced layers of
additional administrative process without fixing deeper problems. It also means
that Defence is caught in a reform roundabout where before one set of reforms
can be implemented, another one takes over.
3.50
The question for the committee is how to redirect attention and energies
towards addressing of the fundamentals in order to affect real change and stop
the endless cycle of reviews and recommendations which have become a symptom
rather than a solution to the problems before Defence.
Navigation: Previous Page | Contents | Next Page