Program Evaluation, prepared for the Budgetary Responsibility Oversight Committee: an assessment of the Georgia Department of Defense Counterdrug Task Force results-based budget goal and desired result

PROGRAM EVALUATION
Prepared For The Budgetary Responsibility Oversight Committee

An Assessment of the Georgia Department of Defense Counterdrug Task Force Results-Based Budget Goal and Desired Result

July 2002
Performance Audit Operations Division Russell W. Hinton, State Auditor Department of Audits and Accounts

254 Washington St. S.W. Atlanta, GA 30334-8400

Purpose of the Georgia Department of Defense Counterdrug Task Force
The purpose of the Georgia Department of Defense Counterdrug Task Force (CDTF) is to provide support, upon request, in the form of personnel and equipment to federal, state, and local law enforcement agencies and community-based organizations. The CDTF supports law enforcement agencies in their efforts to enforce the laws pertaining to the sale and manufacture of illegal drugs and supports community-based organizations in their drug prevention efforts.
Issues Addressed
Specific objectives of the program evaluation, as determined by the Budgetary Responsibility Oversight Committee (BROC), include the following:
To comment on the validity of the CDTF Results-Based Budget (RBB) goal and desired result; and,
To evaluate the reliability of the CDTF RBB data.
Background
The CDTF operates as a unit of the Georgia Department of Defense Joint Operations Directorate and has been operational since 1989. It is entirely funded through federal funds and drug asset forfeiture funds. The federal funds are not included in the state's financial system. CDTF personnel are federal employees, and federal regulations establish the operational parameters for the CDTF. The CDTF Coordinator, appointed by the Georgia Department of Defense Adjutant General, manages day-to-day operations. The day-to-day operations are conducted in accordance with the state plan submitted by the Georgia National Guard to the federal National Guard Bureau. CDTF headquarters are located at Dobbins Air Reserve Base, and CDTF personnel conduct missions throughout Georgia.
The CDTF provides assistance only in response to requests from law enforcement agencies and community-based organizations. Assistance is provided according to the priorities established in the state plan.

Counterdrug Task Force

Page 1

Organization & Activity Data
Assistance activities provided by the CDTF are organized into individual missions and are categorized as either drug enforcement or drug prevention. Missions vary in duration and required personnel. For example, a single mission may consist of a one-day presentation to a school or a yearlong assignment to one law enforcement agency. Missions may include multiple CDTF personnel or only one person.
The CDTF has 51 full-time Air and Army National Guard positions and is generally organized into three operational areas. These operational areas, the staffing for each area, and the activities for each area are discussed below.
Management and Headquarters Nine personnel. The personnel assigned to the management and headquarters element provide administrative, budget, logistical, and management support to the CDTF.
Drug Enforcement 37 personnel. Drug enforcement personnel conducted 186 missions in federal fiscal year 2001. The drug enforcement operations of the CDTF focus on supporting law enforcement agencies in enforcing the laws pertaining to illegal drugs. The CDTF conducts a variety of operations in support of law enforcement agencies. These operations are discussed below.
o Helicopter Reconnaissance and Interdiction Detachment (RAID) Unit Seven personnel. The RAID Unit supports marijuana suppression operations by conducting helicopter flights that are used to identify marijuana plants and fields. The RAID Unit consists of four OH-58A+ helicopters. In federal fiscal year 2001, the RAID Unit flew approximately 774 hours in support of state and local marijuana suppression efforts.
o Silent Watch Five personnel. The Silent Watch/Special Operations unit provides ground reconnaissance support to law enforcement agencies. This includes both the personnel and equipment necessary for these operations in order to assist in the detection and identification of illegal drugs. Operations include observing, documenting (through photographic, video, and electronic means), and reporting of vehicles, locations, and individuals involved in illegal drug activities.
o Case Support Analysts 22 personnel. CDTF case support analysts research and gather information pertaining to suspected drug violators. The information collected is then analyzed, and a written assessment is provided to the appropriate agent to aid in the presentation of evidence. There are 10 analysts attached to federal agencies, seven to state agencies, and five to local law enforcement agencies. Analysts assigned to local law enforcement agencies may work directly for the local law enforcement agency or may be attached to a multi-jurisdictional drug task force. Activities include providing transcripts and translations of audio/video tapes, seized documents, and other information. Additionally, analysts assist in the development of drug enforcement intelligence databases and in the preparation of cases for prosecution.

Page 2

Counterdrug Task Force

o Training Two personnel. The CDTF training personnel coordinate and provide training to both CDTF personnel and to law enforcement agencies as well. Training provided includes the use of military equipment and military subjects and skills useful in performing drug enforcement operations.
o K-9 Unit One person. The K-9 team provides a working narcotics detector dog and handler for local, state, and federal law enforcement agencies.
Drug Prevention Five personnel. Drug prevention personnel conducted 195 missions in federal fiscal year 2001. Drug prevention efforts include presentations to schools ranging from kindergarten through high school, mentoring programs, and support for substance abuse prevention conferences. The CDTF uses the Botvin Life Skills Training program in its school drug prevention efforts.
Funding
Each state and the four U.S. territories have a federally funded counterdrug task force. The federal funding provided to each task force is based on a federal funding formula that takes into consideration the illegal drug threat facing each state at the time of the task force's inception and historical funding amounts.
Funding for the CDTF in federal fiscal year 2001 totaled $2.8 million, which included $2.75 million in federal funds and $33,080 in drug asset forfeiture funds. CDTF's fiscal year 2002 budget is $3.13 million, which includes a one-time allocation of $500,000 in additional federal funds to support efforts to demolish abandoned buildings used in the street-level trafficking of illegal drugs.
Federal and state law allows law enforcement agencies to seize property that is linked to illegal drug sales and possession (referred to as asset forfeiture). Seized property can include practically anything of value (such as real estate, money, cars, weapons, cell phones, scales, etc.). The CDTF may receive a portion of this seized property when they have participated in the investigation supporting the seizure.
In addition to direct federal funding, the counterdrug task force in each state may receive state funds. Also, some state counterdrug task forces participate in drug asset forfeiture and maintain an asset forfeiture balance. Exhibit 1 (on the following page) shows each state reviewed, its funding sources, and performance measure information.

Counterdrug Task Force

Page 3

Exhibit 1 Counterdrug Task Force Federal Fiscal Year 2001 Funding and
Performance Measures - Other States

State Performance Organization Measures

Federal Funds1

State

Asset Forfeiture

Funds1 Total Funds Participation

Alabama

No

$ 3,356,000 $

- $ 3,356,000

Yes

Florida2

Yes

$ 8,249,000 $ 200,000 $ 8,449,000

Yes

Georgia

Yes

$ 2,750,000 $

- $ 2,750,000

Yes

North Carolina3

Yes

$ 2,800,000 $

- $ 2,800,000

No

South Carolina

No

$ 1,744,000 $

- $ 1,744,000

No

Tennessee Texas

No

$ 3,600,000 $ 164,000 $ 3,764,000

Yes

Yes

$ 16,874,000 $

- $ 16,874,000

Yes

Source: Counterdrug Task Force Staff Interviews

(1) All amounts rounded to the nearest thousands. (2) Florida's federal funds include a one-time allocation of $1,000,000 in additional federal funds. (3) North Carolina's federal funds include a one-time allocation of $500,000 in additional federal funds.

Other States' Outcome Measures
Each counterdrug task force is required to have federal performance measures. Since each state's primary mission may vary, each state's federal performance measures also may vary. For example, Florida's CDTF maintains a dive team that searches the hulls of ships for illegal drugs, while Georgia's CDTF does not perform that particular mission.

In addition to federal performance measures, some state governments also require state performance measures. The state measures may relate to all of the counterdrug task force activities or may be limited to the counterdrug task force activities funded through state appropriations. For example, the Florida CDTF receives $200,000 in state funds to operate a counterdrug training academy and has performance measures pertaining directly to the operations of the training academy.

Based on a review of Texas and states contiguous to Georgia, the evaluation team noted that Florida, North Carolina, and Texas use state performance measures. Texas uses a state performance measure similar to Georgia's to assess the activities of their counterdrug task force. The measure identifies the number of missions performed each year in support of law enforcement agencies. In addition, Texas has performance measures pertaining to its drug prevention mission and other mission areas addressed by the Texas CDTF.

Florida uses performance measures for both the state-funded counterdrug training academy and the overall operations of the Florida CDTF. The additional measures identify the number of staff days devoted to counterdrug tasks and the number of high school students attending drug awareness presentations. Florida's state performance measures are not comparable to Georgia's because Georgia's state performance measure identifies the percentage of requests for counterdrug assistance that are filled. Florida also uses a separate drug prevention measure while Georgia does not.

North Carolina's performance measures pertain to both drug enforcement and drug prevention. These measures identify the number of staff days/missions dedicated to ionization scans, which are

Page 4

Counterdrug Task Force

used to detect drug residue, and identify the total number of staff days devoted to the support of the North Carolina CDTF drug prevention mission. North Carolina's state performance measures are not comparable to Georgia's because they only measure a particular component of North Carolina's CDTF drug enforcement activities and they separately measure their drug prevention activities. Georgia's state performance measure encompasses all of the CDTF's drug enforcement and drug prevention activities.
Evaluation Methodology
This evaluation was conducted in compliance with O.C.G.A. 45-12-178 enacted in 1993 and was performed in accordance with generally accepted government auditing standards for performance audits. The evaluation was conducted under the Budgetary Responsibility Oversight Committee's theme, "Drug Enforcement and Prevention." The evaluation methodology included:
Review of CDTF records;
Interviews with CDTF personnel;
Reliability and completeness tests of the RBB data; and,
Review of Counterdrug Task Force unit performance measures in other states.
The entire report was discussed with appropriate personnel at the CDTF and a draft copy was provided for their review. The CDTF indicated in their written response that they did not have any disagreement with the report.

Issue: Validity of the CDTF RBB goal and desired result.

The ultimate goal of drug enforcement is to decrease the available supply of illegal drugs and, in turn, reduce the negative impact that illegal drugs have on society. The most useful outcome measure for assessing drug enforcement activities would measure the impact of drug enforcement activities on the available drug supply; however, drug enforcement programs are not able to use this outcome measure since the available supply of drugs is unknown. Because drug enforcement programs may not use this outcome measure, drug enforcement programs often use output measures (which is defined as the quantity of services delivered or activities in a set period) such as the amount of drugs seized. However, the amount of drugs seized does not measure the impact of drug enforcement activities on the available drug supply. For example, the total volume of drugs supplied to an area during a year may increase due to increased drug production, increased shipping, or other factors. In that scenario, a law enforcement agency's drug enforcement activities in that area may result in an increased volume of drug seizures while the total available drug supply has actually increased.

The CDTF's goal and desired result that were included in the Governor's Budget Report for fiscal year 2003 are shown in Exhibit 2.

Counterdrug Task Force

Page 5

Exhibit 2 Counterdrug Task Force Results-Based Budgeting Goal and Desired Result
Fiscal Year 2003
DEPARTMENT OF DEFENSE - Results-Based Budgeting

COMMUNITY SERVICE AND SUPPORT Purpose: Through the use of Georgia Department of Defense resources, provide services and support to improve the quality of life in Georgia communities.

Goal 3: Assist law enforcement in reducing the flow of illegal drugs into, through and manufactured in Georgia.

Desired Result 3a: The percentage of requests for assistance made by drug law enforcement

agencies that are filled.

FY 1998 FY 1999 FY 2000 FY 2001 FY 2002 FY 2003

Desired Result1

NA

NA

NA

NA

85% 85%

Actual Result

71%

93%

84%

76%

(361 of 508) (341 of 368) (448 of 531) (381 of 500)

Source: Governor's Budget Report - Fiscal Year 2003 1 The desired result published in the FY 2003 Governor's Budget Report changed from a desired number of missions to a percentage of missions complete. As this is a new measure, there is no desired results data from prior years.

While the CDTF's fiscal year 2003 RBB goal is valid and the desired result is a valid indicator of its effectiveness, both the goal and desired result could be improved. The goal should be changed to include reduction in the use of illegal drugs in Georgia.
The CDTF has one goal and one desired result identified in the Governor's Budget Report for fiscal year 2003 (see Exhibit 2). The goal is an indicator of how well the CDTF is meeting its purpose. In order to measure the progress towards meeting its goal, the CDTF measures the percentage of requests for assistance that it fills each federal fiscal year (October 1 through September 30) in support of law enforcement and community-based organizations.
While the percentage of requests for assistance filled is a valid output measure, both the goal and desired results measure could be improved. As noted in Exhibit 2 above, the desired result published in the Governor's Budget Report changed from a desired number of missions to a percentage of requests for assistance that are filled. The Office of Planning and Budget initiated this change because the previous desired result was not phrased as a result. The previous desired result provided no data on the CDTF's success in providing assistance when compared to the number of requests received. The previous desired result simply indicated the number of requests for assistance that the CDTF filled and did not indicate the actual number of requests received.
The goal could be improved by including a reference to the assistance provided to community organizations regarding the reduction in the use of illegal drugs in Georgia. The goal as currently stated does not include the drug prevention purpose that is part of the CDTF mission.
The desired result could be improved by including a measure of assistance to both law enforcement agencies and community-based organizations. The current desired result only mentions law

Page 6

Counterdrug Task Force

enforcement agencies, but the CDTF provides assistance to both law enforcement agencies and community-based organizations.
Since a mission can vary in type, duration, and required personnel, the number of missions conducted by the CDTF could vary greatly from year to year while the level of assistance provided may not change. A potential addition to the current desired result is to measure the percentage and number of CDTF work hours dedicated directly to drug enforcement and drug prevention assistance out of the total number of work hours available to the CDTF each year.
Issue: Reliability of the CDTF RBB data.
Actual program activity data reported for fiscal year 2000 and fiscal year 2001 for CDTF's desired results were reliable.
The process used by the CDTF to collect and submit actual program activity data for use in the fiscal years 2000 and 2001 RBB was reviewed and adequate controls existed to ensure the data was reliable. The process to collect activity data begins with the submission of a mission request to the CDTF by a law enforcement agency or community-based organization. Each request is assigned a mission number and is categorized in the planning stage. The mission is then assigned to the appropriate personnel. Missions may be cancelled due to lack of resources or if the requesting agency later withdraws its original request. Completed missions are only those missions that are completed within a given federal fiscal year. All of the mission data is maintained electronically in the federal Counterdrug Management Information System (CMIS), and the supporting hard files are maintained at the CDTF headquarters. CDTF officials, upon request by the Defense officials responsible for preparing RBB submissions, report the number of missions executed to-date in the federal fiscal year.
Although the RBB data is reliable, the desired results should be clearly identified as reported on a federal fiscal year basis to avoid misinterpreting the data as state fiscal year data. In addition, timing issues have resulted in an underreporting of fiscal year 2000 missions in the FY 2002 Governor's Budget Report. Since RBB data is submitted to OPB prior to the end of the federal fiscal year, the CDTF actual results data is underreported. For fiscal year 2000, the CDTF reported 430 missions for RBB purposes in the FY 2002 Governor's Budget Report, but actually completed 448 missions. This resulted in an underreporting of 18 (4% of total) missions. This was subsequently corrected in the FY 2003 Governor's Budget Report, but this underreporting may occur in the future if CDTF RBB data is submitted prior to the end of the federal fiscal year.

Counterdrug Task Force

Page 7

For additional information, please contact Paul E. Bernard, Director, Performance Audit Operations Division, at 404.657.5220.

Page 8

Counterdrug Task Force