Omb 2014 Budget Submission



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United States Marshals Service

FY 2014 Performance Budget

President’s Budget

Justice Prisoner and Alien Transportation System

Revolving Fund

usms-seal-300

April 2013
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Table of Contents


Chart 1 12

Chart 2 14

Chart 3 15


V. USMS JPATS Requirements Exhibits

A. Organizational Chart

B. Summary of Requirements

D. Resources by DOJ Strategic Goals and Strategic Objective

F. Crosswalk of 2012 Availability

G. Crosswalk of 2013 Availability

H. Summary of Reimbursable Resources

I. Detail of Permanent Positions by Category

K. Summary of Requirements by Grade

L. Summary of Requirements by Object Class

O. Schedule of Aircraft


  1. Overview

The Justice Prisoner and Alien Transportation System (JPATS) mission is to coordinate and transport prisoners and detainees safely, securely, and humanely, in a timely and economical manner. JPATS is a revolving fund activity with total operating costs being reimbursed by customer agencies. JPATS coordinates the movement of the majority of federal prisoners and detainees, including sentenced, pretrial and criminal aliens, in the custody of the U.S. Marshals Service (USMS) and the Bureau of Prisons (BOP). JPATS also transports Department of Defense and state and local prisoners on a reimbursable, space-available basis.
Using projected prisoner movement requirements provided by the customers, JPATS projects total costs associated with air transportation. OMB Circular A-126 guidelines are utilized to identify fixed and variable air transportation cost categories, and with the utilization of activity based costing, flying hour rates are developed. Customers are billed based on the number of flight hours and the number of seats utilized to move their prisoners/detainees.
The JPATS Revolving Fund provides numerous benefits, including, but not limited to: 1) no-year-account with a consistent funding stream from the customer agencies; 2) operates under the concept of full-cost recovery; 3) provides for multi-year funding/leasing authority for capital acquisitions; and 4) has authority to retain proceeds from the disposal of JPATS aircraft and parts. The JPATS Revolving Fund provides stability in costs to the customer agencies since the fund can absorb, on a short-term basis, cost fluctuations for operating expenses such as fuel and major aircraft maintenance. It also simplifies the task of replacing aircraft and obtaining major aircraft parts by enabling JPATS to extend the cost of equipment purchases or equipment leases over several years, and to plan the procurement of equipment, or equipment lease agreements when needed.
JPATS is committed to ensuring that each scheduled flight is staffed with qualified flight personnel to safely operate each aircraft, that adequate security officers are present to ensure the safety of the detainees/prisoners being transported and the crew, and that at least one medical professional is present for any medical emergency on all medium and large aircraft which transport the majority of prisoners.

  1. Budget Assumptions

JPATS continues to look for opportunities to optimize the transportation network and produce efficiencies for the customer. However, the transportation needs of the customers continue to grow. The key assumptions for this budget formulation include:




  • An increase of 659 flying hours projected by the customer agencies.




  • The price of jet fuel will continue to increase.




  • A major maintenance for the SAAB aircraft.




  1. Efficiencies and Savings

JPATS continually examines its operational areas seeking to increase efficiency and improve the quality of services to generate savings for the customer agencies.



JPATS Efficiencies: JPATS receives over 500 requests daily to move prisoners between judicial districts, correctional institutions, and other locations. In coordination with the Federal Prisoner Detention (FPD) program, JPATS created Regional Transfer Centers (RTC) and JPATS Transfer Annexes (JTA) to facilitate the movement of prisoners to their destination and reduce housing costs by:

  • expanding the in-transit infrastructure;

  • reducing in-transit time;

  • expanding ground transportation capabilities;

  • decreasing reliance on the Federal Transfer Center (FTC) by strategic placement of housing near airlift sites and BOP contract facilities;

  • freeing bed space in highly impacted districts; and,

  • assisting the BOP in addressing prisoner capacity demands, especially for private contract facilities.

JPATS continues to lead optimization efforts to improve performance in the delivery of services and gain efficiencies in both time and cost. Central to JPATS program initiatives is the data and analysis made possible through the JPATS Management Information System (JMIS). More accurate data is now available which helps management analyze areas that impede efficiency which, in turn, drives program improvement through performance measurement and monitoring.



  1. Budget Summary

The following table provides the JPATS Revolving Fund estimates for budget authority and personnel. The budget authority requested is based upon the customers’ projected requirements and estimated carry forward authority for FY 2013 and FY 2014.



Financial Operations

JPATS

2014

(Dollars in Thousands)










FY 2012

FY 2013

FY 2014

Authority










Operating

59,366

50,472

60,325

Less Depreciation

(1,772)

(1,755)

(1,747)

Operating Authority

57,594

48,717

58,578

*Carry Forward Authority

35,574

41,273

17,773

Total Authority

93,168

89,990

76,351





































Staffing










Civilian Positions

123

123

123

Civilian End Strength

95

95

99

Personal Contract Guards

90

90

90




Average GS Salary

79,255

82,195

84,953

Average SES Salary

172,674

173,537

175,609







*Carry Forward Amount from FY 2012 SF-133 dated 9/30/2012



Revenue and Expenses

JPATS

2014

(Dollars in Thousands)




























FY 2012

FY 2013

FY 2014

Revenue

57,133

50,472

60,325

Cost of Operations

(53,025)

(50,472)

(60,325)

Operating Results

4,108

0

0

Adjustment – Other










Net Operating Results (NOR)

4,108

0

0













Accumulated Operating Results (AOR) – Beginning

(5,176)

(1,068)

(1,068)

AOR Adjustments










Accumulated Operating Results (AOR)

(1,068)

(1,068)

(1,068)

The actual accumulated operating results are reported as well as the anticipated AOR for FY 2013 and FY 2014 are provided. The Revenue and Expenses chart on page 11 provides the corollary details.

  1. JPATS Performance Challenges




  1. Transporting Prisoners in a Timely and Economical Manner


Challenge: The demand for prisoner transportation continues to rise with the increase in the detainee and prisoners populations. Given uncontrollable factors such as jet-fuel prices, JPATS must look for innovative solutions to create greater efficiency within the current transportation infrastructure, which will in turn impact the cost of detainee housing. The interdependence of transportation and housing precludes addressing one without having an impact on the other.


  1. Transport Prisoners in a Timely Manner


Strategy: Reduce Schedule Process Time and Request Backlog

BOP is attempting to create an Electronic Inmate Case File (EICF). Once BOP completes this project, the USMS will be able to send documents from eDesignate (a secure, electronic, web-based system that completely automates the sentence to commitment process) directly to EICF, thus likely eliminating the need for a hard-copy travel folder currently required. This will reduce the time involved in the manual process of collecting and accounting for each file. In addition, this project will create the ability to access SENTRY (the BOP’s Inmate tracking system that provides information about incarcerated individuals) data which can enhance the existing eDesignate work flow process thereby reducing the sentence to commitment processing time. Additionally, the JMIS Assisted Routing and Scheduling module, when fully implemented, is expected to further reduce the time it takes to schedule a prisoner for transport and to prioritize the prisoner movement based on process code as well as the cost of pre-transit housing, further assisting in reducing housing costs.




  1. Transport Prisoners in an Economical Manner


Strategy: Develop the Next Generation Aircraft Owner/Leasing Option for Greater Flexibility

JPATS must ensure that an adequate number and appropriate aircraft are available to meet demands. Remaining with leased aircraft will require contracting for newer more reliable aircraft since the current leased fleet is reaching the end of their useful life. However, acquiring newer leased aircraft also likely increase the overall cost. JPATS analyzed requirements for the next generation aircraft acquisition and concluded that the operating and maintenance costs of two owned mid-range aircraft has the potential to save between $5-6 million annually. JPATS funded the aircraft through the revolving fund carryforward reimbursable authority. JPATS continually seeks ways to become more efficient in every aspect of the prisoner transportation mission. This includes working with the BOP and the USMS to attempt to move medical prisoners in the most economical fashion possible. Medical transportation is extremely costly in comparison to regular transportation. Accordingly, JPATS continually works toward better coordination to move medical prisoners on regular air missions.




  1. Performance and Resource Table




PERFORMANCE AND RESOURCES TABLE

Decision Unit: Justice Prisoner and Alien Transportation System

DOJ Strategic Objective III: Provide for the safe, secure, humane, and cost-effective confinement of detainees awaiting trial and/or sentencing, and those in the customary of the federal prison system. • Hold the detention and transportation costs at or below inflation. Optimize the prisoner transportation network. (USMS Goal III, Objective 3.5)

RESOURCES

Target

Actual

Projected

Changes

Requested (Total)




FY 2012

FY 2012

FY 2013 CR

Current Services Adjustments and FY 2014 Program Changes

FY 2014 Request

1. Number of requests for air and ground transportation of prisoners

N/A

111,117

114,450

19,962

134,412

Total Costs and FTE


FTE

$000

FTE

$000

FTE

$000

FTE

$000

FTE

$000

92

$57,575

92

$51,895

95

$48,717

0

$9,861

95

$58,578

TYPE/ STRATEGIC OBJECTIVE

PERFORMANCE

FY 2012

FY 2012

FY 2013 CR

Current Services Adjustments and FY 2014 Program Changes

FY 2014 Request

Program Activity

1. Prisoner Movement

FTE

$000

FTE

$000

FTE

$000

FTE

$000

FTE

$000

92

$57,575

92

$51,895

95

$48,717

0

$9,861

95

$58,578

Performance Measure Outcome

1. Transportation Unit Cost

$1,830

$1,273

$ 1,400

$ 50

$1,450

Notes: New metrics modified and submitted for approval

With one year of historical data available to increase the validity of unit cost estimates, FY 2013’s unit transportation cost measure target was reduced to the level of $1,400. The FY 2014 transportation unit cost target was established utilizing the new FY 2013 base and allowing for cost inflation.



A. Definition of Terms or Explanations for Indicators.

Workload:

1. JPATS receives requests to move prisoners and determines the appropriate mode of transportation (i.e., ground and/or air movement). JPATS uses the JPATS Transportation module within the JPATS Management Information System (JMIS), to schedule and track movements electronically.



Total Workload: The workload was modified in FY 2012 to include the number of ground, as well as air transportation requests. This gives a broader view of actions needed to facilitate prisoner movements.
Performance Measure:

In keeping with the strategic approach of DOJ, JPATS developed the following performance measure in FY 2011 and the measure reporting began in FY 2012.

1.   Transportation Unit Cost

a. Data Definition: The total cost per prisoner (transportation coordinated by JPATS) incurred from the prisoner’s point of origin to final destination.  Component costs include the cost of transporting the prisoner (by air, bus, van, and car) and the cost of housing the prisoner while in-transit.  The cost of BOP-provided in-transit housing and bus transportation is included as part of the reported costs.

b. Data Collection and Storage:  Data describing prisoner transportation and the costs associated with transportation and housing is maintained in several databases.  The USMS JPATS Management Information System (JMIS) data system maintains information describing prisoner movements such as the points of origin and final destination, how the prisoner was moved, and where the prisoner was housed, as applicable, while in-transit.  JMIS also maintains information describing the cost of air movements and JPATS-coordinated ground transportation.  BOP provides information describing the cost of BOP-sponsored bus transportation.  The USMS Justice Detainee Information System (JDIS), and the eIGA system and other records that had been managed by OFDT, provide information describing the cost of non-federal housing.  Data is maintained on each prisoner transported by JPATS. Data from the various systems is aggregated together by JMIS to determine the prisoner-specific total transportation costs.

c. Data Validation and Verification: Component data is provided to JPATS by the various agencies.  JPATS validates the data for completeness and to ensure that the data provided is within historical parameters.

d. Data Limitations:  Maintaining prisoner transportation data is a labor-intensive process.  The reliability of the component data is often compromised by invalid data entry.  Accordingly, labor-intensive data analysis is often required to ensure that the data provided to JPATS passes certain logical tests. Additionally, data describing the cost of BOP-sponsored transportation is based on standardized formulae provided by the BOP for calculating the cost of operating their buses. The costs of BOP-provided in-transit housing are based on BOP-reported per capita cost of operating BOP facilities, particularly the Federal Transfer Center in Oklahoma City.
B. Factors Affecting FY 2013 and FY 2014 Plans. The USMS and JPATS’ strategic plans encompass the efforts to optimize use of the transportation network. The performance metrics capture the entire workload of transportation requests and performance related to the entire prisoner cost of transportation, including in-transit housing. Given finite resources and uncontrollable fuel prices, USMS must look for innovative solutions to create greater efficiency within the current infrastructure. The interdependence of transportation and housing precludes addressing one without the other. The measure of Transportation Unit Cost shows the cost effectiveness of strategies to reduce total transportation time, strategies to optimize routing (since there are normally several legs to the trip), strategies to maximize seat utilization, and strategies to utilize the most cost effective housing available. The demand for transportation will continue to rise with the increase in detainee population.

  1. JPATS Operating Budget



Fiscal Year (FY) 2014 Budget Estimates

Changes in the Costs of Operation

JPATS

2014

(Dollars in Thousands)







FY 2012 Budget Estimate*

59,859







MidYear Budget 2012

55,879




Pricing Adjustment

Aircraft Fuel

(1,932)

Aircraft Maintenance

(466)

Aircraft Leases

646

Civilian Labor

(474)

Depreciation

(17)

JPATS Management Information System-Transportation

(722)

Medical Expenses

(137)

Other – Relocation

(1,752)

Other

(553)




FY 2013 Budget Estimate

50,472







Pricing Adjustments:

Aircraft Fuel

2,777

Aircraft Maintenance

1,934

Civilian Labor

995

Contract Crews

280

Increased Variable Cost - Flight Hours

551

Depreciation

(8)

Law Suit Contingency

3,152

Other

172







FY 2014 Budget Estimate

60,325




* FY 2012 Budget Estimate includes $57,575 Operating Level, as reported in the FY 2013 President’s Budget, and $2,384 depreciation.

Chart 1




Fiscal Year (FY) 2014 Budget Estimates

Sources of New Orders and Revenue

JPATS

2014

(Dollars in Thousands)







FY 2012

FY 2013

FY 2014

1. New Orders

a. Orders from Customers

USMS

37,761

33,955

43,276

BOP

18,199

16,517

17,049

OFDT

1,043







Other

130










a. Total Orders from Customers

57,133

50,472

60,325


Chart 2




Fiscal Year (FY) 2014 Budget Estimates

Revenues and Expenses

JPATS

Financial Operations

2014

(Dollars in Thousands)





FY 2012

FY 2013

FY 2014

Revenue

FY2012







Operations

57,133

50,472

60,325

Other Income










Total Income

57,133

50,472

60,325













Expenses










Aircraft Operating Expenses










Aircraft Fuel

14,472

12,539

15,317

Aircraft Maintenance

4,798

4,333

6,266

Aircraft Leases

12,027

12,673

12,627

Aircraft Operating Expenses Total

31,297

29,545

34,210













Labor Related Expenses










Civilian Labor

12,014

11,615

12,344

Employee Training

300

452

615

Guards, Contract Services

2,459

2,233

2,545

Labor Related Expenses Total

14,773

14,300

15,504













Mission Support Expenses










Contract Crew

174

100

380

Aircraft Ground Spt Expenses

340

353

365

Navigation Data, Tech Periodicals

167

199

227

Medical/PHS Expenses

336

200

237

Mission Travel

445

507

808

Mission Support Expenses Total

1,462

1,359

2,017













Non-Mission Support Expenses










Facilities Expenses

1,323

1,356

1,490

Admin & Support Expenses

1,798

1,172

1,212

Non-Cap Equip Purchases/Rental

137

85

194

Non-Mission Travel

121

380

378

Other Expenses

342

520

3,573

Non-Mission Support Expenses Total

3,721

3,513

6,847













Total Expenses

51,253

48,717

58,578

























Operating Results

5,880

1,755

1,747

Depreciation

(1,772)

(1,755)

(1,747)

Net Operating Results

4,108

0

0

PY AOR

(5,176)

(1,068)

(1,068)

AOR Adjustments










Accumulated Operating Results

(1,068)

(1,068)

(1,068)













Net Income from all sources

(1,068)

(1,068)

(1,068)

Chart 3



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