U.S. General Services Administration Administrator's Semiannual Management Report to Congress Report No.55 April 1, 2016 - September 30, 2016 U.S. General Services Administration Denise Turner Roth Administrator Office of Administrative Services Cynthia A. Metzler Chief Administrative Services Officer GAO/IG Audit Management Division Leroy Ford Director November 2016 This report is in the public domain. Authorization to reproduce it in whole or in part is granted. While permission to reprint this publication is not necessary, the citation should be: U.S. General Services Administration, Office of Administrative Services, GAO/IG Audit Management Division, Administrator's Semiannual Management Report to the Congress, No. 55, Washington, DC 20405. To obtain copies of this report, Write to: U.S. General Services Administration, Office of Administrative Services, GAO/IG Audit Management Division, 1800 F Street, NW Washington, DC 20405 E-mail your request to Les Painter at: les.painter@gsa.gov or GAO-IGAuditMgmtDiv@gsa.gov Call in your request: (202) 501-1795 Obtain a copy of this report on the agency's Web site at: Semiannual Report to the Congress Contents Synopsis of Audit Activity 4 Overview 5 U.S. General Services Administration Organization 5 Organization of Audit Follow-up Program 6 Agency Audit Follow-up Official 6 The Chief Administrative Services Officer 6 Heads of Services and Staff Offices and Regional Administrators 6 Audits with Disallowed Costs 7 Audits with Better Use Funds 8 Internal Audits 9 Audits under Appeal/Litigation 10 Contract Audits 11 Glossary of Terms 20 Appendix 22 In accordance with the Inspector General Act of 1978, as amended, the Administrator is required to report directly to the Congress on management decisions and final actions taken on audit recommendations made by the Office of Inspector General (OIG) of the General Services Administration (GSA). This report covers the semiannual management reporting period of April 1, 2016, through September 30, 2016. The report provides a summary of: - Cases where final action has not been taken on audits one year after the date of the management decision. - Implementation of the recommendations by GSA management contained in audit reports issued by the OIG. At the commencement of this semiannual management reporting period, there were audit reports with disallowed costs, audit reports with better use funds, and audit reports with both disallowed cost and better use funds. On April 1, 2016, there were 143 audit reports pending final action containing financial recommendations totaling $1,768,274,118. There were 123 contract audits with financial recommendations totaling $1,768,087,224 and 20 internal audits with financial recommendations totaling $186,894. During the reporting period, management decisions were made on 39 audit reports concerning nationwide GSA programs and operations. Of the 39 audits, 32 of these audits found $71,378,202 in pre-award, post-award contracts and internal program spending that was incorrectly charged to the Government (known as disallowed costs). Additionally, of the 39 audits, 24 audits recommended that $92,003,995 could be used more efficiently (known as funds to be put to better use) if management took action to implement and complete the OIG recommendations. This information is disclosed in Appendix A. Two of the 39 audits contained no monetary value and were issued by the Office of Inspections and Forensic Auditing. During the most recent six-month period, GSA was able to successfully take final action on a total of 46 audits. These audits represent the recovery of $13,409,665 in Government funds and the identification of $304,839,962 in potential future savings. As of September 30, 2016, 136 audit reports remain open. There are six audits involving claims under appeal or litigation during this reporting period. This report, submitted pursuant to the Inspector General Act of 1978, as amended, presents management's perspective on audit resolution and follow-up activity at GSA for the period beginning April 1, 2016, through September 30, 2016. This is GSA's 55th report to the Congress since the implementation of this requirement in the Act (Public Law 100-504). The data in the report indicates that GSA's audit follow-up efforts continue to play a significant role in the effective management of GSA operations and the accomplishment of its mission which results in better use of taxpayer dollars. U.S. General Services Administration Organization GSA is organized around three major business functions represented by the Federal Acquisition Service, the Public Buildings Service, and the Technology Transformation Service. In addition, GSA houses the Office of Government-wide Policy and a number of Staff Offices which provide support to the other GSA organizations. There are 11 regions in the GSA structure. The Administrator of GSA directs the execution of all GSA functions. Members of the Administrator's office, as well as Regional Administrators and Heads of Services and Staff Offices, advise and make recommendations on policy or operational issues of national scope. They are also responsible for execution of programs and services within their service, region, or staff office, under the leadership of the Administrator. GSA has effective systems in place for keeping track of audit recommendations. In addition, GSA's senior management is committed to ensuring that appropriate corrective action is taken. Agency managers have the responsibility to act on the auditor's recommendations, with the audit resolution process being supervised by the agency's audit follow-up official. A description of the responsibilities of GSA officials involved in the audit follow-up process is set forth below: Agency Audit Follow-up Official The Deputy Administrator is the Agency Audit Follow-up Official responsible for audit follow-up activity. This position has overall responsibility for ensuring the adequacy of the agency's follow-up system, monitoring the resolution of audit recommendations, and ensuring the prompt implementation of corrective actions. This position also makes final decisions to resolve differences between agency management and the OIG. The Chief Administrative Services Officer (CASO) The CASO provides direction and oversight to the officials in the Office of Administrative Services (OAS) who manage the GSA's Audit Resolution and Follow-up System. Their responsibilities include: - Acting as the liaison with the Government Accountability Office (GAO) for the coordination of GAO audits in progress within GSA and for preparation of responses and reports for the signature of the Administrator on GAO recommendations as required by law; - Ensuring timely resolution and implementation of internal and external audit recommendations made by the GAO and the OIG; - Overseeing the collection and proper accounting of monetary amounts determined due to the Government as the result of audit-related claims; - Analyzing GSA's programs, upon request from the Administrator, particularly as related to past or present audit recommendations; and, - Maintaining an automated report control system for both internal and external audits that provides an accurate means for tracking and documenting actions taken to implement audit recommendations. Heads of Services and Staff Offices, Regional Administrators, and Commissioners Heads of Services and Staff Offices, Regional Administrators, and Commissioners, to whom audit recommendations pertain, have primary responsibility for resolving and implementing recommendations promptly. Their responsibilities include: - Ensuring controls are implemented to provide timely, accurate, and complete responses to audit reports; - Developing, advocating, and documenting agency positions on audit recommendations; - Preparing responses for GAO draft reports and transmittals for final GAO reports in coordination with OAS; - Providing comments on audit decision papers prepared by the OIG to ensure that management's position on unresolved audit recommendations is properly stated. Final action for the six-month period Ending SEPTEMBER 30, 2016 A. Audit reports for which final action had not been taken by the commencement of the reporting period. B. Audit reports on which GSA/OIG management decisions were made during the reporting period. Number of Audit Disallowed Reports Costs 143 $105,918,276 39 $71,378,202 C. Audit reports on which final action was taken during the reporting period. (i) ) the dollar value of disallowed costs - collections $3,276,580 - offset $5,339,351 - property in lieu of cash... $0 - surplus $1,148,382 - other .............................. $0 (ii) the dollar value of disallowed costs that were written off by management. 46 $13,409,665 $9,764,313 $3,645,352 D. Audit reports for which no final action has been taken by the end of the reporting period and audit reports issued during this reporting period. 136 $101,889,644 Final action for the six-month Number of Audit Ending SEPTEMBER 30, 2016 Reports A. Audit reports for which final 143 action had not been taken by the commencement of the reporting period. B. Audit reports on which 39 management decisions were made during the reporting period. No Budget Impact (Actual and Estimated) $1,662,355,842 $92,003,995 Budget Impact $0 $0 C. Audit reports on which final 46 $304,839,962 $0 action was taken during the reporting period. (i) the actual dollar value of $65,544,645 recommendations that were actually completed. (ii) the actual dollar value of $0 recommendations that management has subsequently concluded should not or could not be implemented or completed. (iii) the actual dollar value of $1,189,218 recommendations that management has subsequently concluded should not or could not be determined (calculated). (iv) the estimated dollar value of $240,484,535 ''funds to be put to better use'' as agreed to by GSA management and the OIG. D. Audit reports for which no final action has been taken by the end of the reporting period and audit reports issued during this reporting period. 136 $1,558,429,188 $0 Internal Audits Audits with Management Decisions made prior to September 30, 2015, but with Final Action not taken as of September 30, 2016 REPORT NUMBER TITLE OF REPORT DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION PROJECTED COMPLETION DATE Disallowed Costs Better Use Funds A110217PRR14004 Procurement Errors, Financial Losses, and Deficient Contract Administration Demonstrate Ineffective Management of the Ronald Reagan Building and International Trade Center 06/17/2014 $186,894 $0 Audit is in the Implementation Stage. 10/31/2016 Audits under Appeal/Litigation REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS Disallowed Costs Better Use Funds A130034P4X13032 Caddell Construction Co., Inc. 03/28/2013 $0 $5,001,544 A140110P4X15003 Suffolk Construction Company, Inc. 11/10/2014 $0 $10,303,508 A140116P4X15016 City Lights Electrical Company, Inc. 01/30/2015 $0 $8,214,471 A140118P4X16005 N.B. Kenney Company, Inc. 11/13/2015 $0 $5,128,960 A150113P4X16008 Matsuo Engineering Centerre Construction, A Joint Venture 11/20/2015 $0 $3,423,911 A160051P4X16038 Motir Services, Inc. 05/11/2016 $0 $574,463 REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A090042Q9X09019 Postaward Audit Report on Direct Costs Incurred on Trilogy Project: Computer Sciences Corporation 12/29/2008 $ 14,951,923 $0 Investigation in process - An investigation has been opened by either the OIG or the Justice Department regarding actions taken by the Contractor A110063QAX11053 IntelliDyne, LLC 05/16/2011 $3,948,160 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A110088Q3X11079 Global Protection USA, Inc. 07/28/2011 $29,337 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A100119Q6X11081 Noble Sales Co., Inc. 08/03/2011 $0 $0 Price/settlement negotiated - Negotiations have been completed between Contracting Officer and Contractor A110186Q7X12018 BRSI, LP 01/23/2012 $0 $7,425,000 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120136P4X12053 Lenex Steel Company 07/17/2012 $0 $834,067 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A110209Q6X12057 Propper International Sales, Inc. 08/15/2012 $2,063,375 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120083P9X12059 M.A. Mortenson Company 08/21/2012 $0 $2,814,148 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120071Q2X13002 ICF Z-Tech, Inc. 10/16/2012 $14,580 $166,639 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120150Q3X13018 Grant Thornton LLP 01/24/2013 $3,848 $8,200,000 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120165P4X13019 Skanska USA Building, Inc. 01/30/2013 $0 $82,475 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130034P4X13032 Caddell Construction Co., Inc. 03/28/2013 $0 $5,001,544 Litigation in process - The contractor has appealed the Contracting Officer's decision and the audit is now in the litigation process REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A120127Q4X13033 General Dynamics Information Technology, Inc. 03/29/2013 $147,371 $48,528,780 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120162Q5X13036 Kforce Government Solutions, Inc. 04/17/2013 $147,666 $11,000,000 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A120175Q3X13041 STG Inc. 05/22/2013 $0 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A100054Q6X13056 Limited Scope Review of Contractor-Disclosed Overbillings: Northrop Grumman Information Technology, Inc. 07/23/2013 $ 53,271,251 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130071Q5X14018 Industries for the Blind, Inc. 01/31/2014 $306,596 $6,900,000 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130099P4X14011 HCBeck, Ltd. 03/24/2014 $0 $1,689,965 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130049Q4X14024 SimplexGrinnell LP 03/31/2014 $0 $7,903,263 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A130136Q3X14026 Fisher Scientific Company LLC 04/14/2014 $0 $9,026,350 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A110139Q9X14028 Alaska Structures, Incorporated 04/24/2014 $1,999,255 $0 Investigation in process - An investigation has been opened by either the OIG or the Justice Department regarding actions taken by the Contractor A140057Q3X14043 ATD-American Company 06/19/2014 $4,895 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140126P4X14044 Hoar-Christman, LLC 06/26/2014 $0 $268,151 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130043Q2X14049 ICF Z-Tech, Inc. 07/16/2014 $2,482,454 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A130116Q3X14053 Management Concepts, Inc. 07/29/2014 $14,121 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A130125Q4X14056 Sigmatech, Incorporated 08/29/2014 $6,001 $33,054,559 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140132Q7X14061 A-T Solutions, Inc. 09/16/2014 $239,961 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140044Q6X14064 American Institutes for Research in the Behavioral Sciences 09/25/2014 $124,671 $5,722,607 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140122P5X14066 Swinerton Builders 09/29/2014 $237,627 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140110P4X15003 Suffolk Construction Company, Inc. 11/10/2014 $0 $10,303,508 Litigation in process - The contractor has appealed the Contracting Officer's decision and the audit is now in the litigation process A140123Q7X15005 The Columbia Group, Inc. 11/14/2014 $111,710 $0 Price/settlement negotiated - Negotiations have been completed between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A110194Q4X15008 Global Mail, Incorporated 12/03/2014 $3,780,850 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140124P2X15012 Tocci/Driscoll, A Joint Venture 12/24/2014 $3,230,074 $0 Price/settlement negotiated - Negotiations have been completed between Contracting Officer and Contractor A140116P4X15016 City Lights Electrical Company, Inc. 01/30/2015 $0 $8,214,471 Litigation in process - The contractor has appealed the Contracting Officer's decision and the audit is now in the litigation process A110188Q6X15024 Mythics, Inc. 03/05/2015 $37,667 $761,187,999 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140127Q3X15026 Booz Allen Hamilton Inc. 03/20/2015 $11,997 $57,850,821 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140149P4X15027 Examination of a Request for Equitable Adjustment: Donaldson Interiors, Inc. Subcontractor to Cauldwell Wingate Company, LLC 03/27/2015 $0 $ 1,548,592 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A140039Q4X15029 High Performance Technologies Innovations, LLC 03/31/2015 $0 $14,211,447 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140083Q7X15031 Arcadis U.S., Inc. 04/13/2015 $0 $840,969 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140036Q2X15032 VSE Corporation 04/15/2015 $12,908 $38,960,325 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140144P4X15033 Integrity Management Consulting, Inc. 04/30/2015 $0 $0 Unresolved - Agreement has not been reached between OIG and Contracting Officer on the Decision Record A140059Q3X15036 BAE Systems Information Solutions Inc. 06/03/2015 $48,663 $10,921,656 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140074Q6X15037 TASC, Inc. 06/10/2015 $1,886,901 $13,914,079 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140154Q6X15038 Preaward Examination of Multiple Award Schedule Contract Extension Partnet, Inc. 06/19/2015 $1,530,526 $19,569,823 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A150071Q7X15041 CAS, Inc. 07/08/2015 $21,171 $5,872,856 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A150003Q4X15042 Raydon Corporation 07/14/2015 $0 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A100218Q2X15052 Limited Scope Postaward Examination of Multiple Award Schedule Contract: Geneva Worldwide, Inc. 08/13/2015 $ 230,899 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A150067P4X15054 Examination of a Request for Equitable Adjustment: Limbach Company, LLC, Subcontractor to Columbia Construction Company 08/19/2015 $0 $467,499 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140131Q5X15055 Preaward Examination of Multiple Award Schedule Contract Extension Executive Information Systems, LLC 08/21/2015 $0 $2,480,941 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A150121P4X15057 Examination of a Request for Equitable Adjustment: H. Carr & Sons, Inc., Subcontractor to Columbia Construction Company 09/01/2015 $0 $ 435,257 Price/settlement negotiated - Negotiations have been completed between Contracting Officer and Contractor REPORT NUMBER NAME OF CONTRACTOR DATE OF REPORT MANAGEMENT DECISION AMOUNTS REASON FOR NO FINAL ACTION Disallowed Costs Better Use Funds A150006Q6X15058 Preaward Examination of Multiple Award Schedule Contract Extension: Stratus Consulting, Inc. 09/03/2015 $0 $1,772,946 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A150124P5X15059 Examination of a Final Settlement Proposal Swinerton Builders 09/14/2015 $0 $4,308,742 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A140079Q6X15061 Preaward Examination of Multiple Award Schedule Contract Extension: CACI, INC. - FEDERAL 09/23/2015 $0 $32,340,353 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor A150002Q3X15063 Preaward Examination of Multiple Award Schedule Contract Extension: Government Contract Solutions, Inc. 09/30/2015 $ 70,640 $0 In negotiation - Negotiations are proceeding between Contracting Officer and Contractor The following definitions, based on the Inspector General Act Amendment of 1978, apply to terms used in this Semiannual Management Report: Questioned Costs. Costs questioned by the OIG as a result of: • an alleged violation of a provision of a law, regulation, contract, grant, cooperative agreement, or other agreement or document governing the expenditure of funds; • a finding that, at the time of an audit, such cost is not supported by adequate documentation; • a finding that the expenditure of funds for the intended purpose is unnecessary or unreasonable. Disallowed Cost. Questioned costs that GSA management in a management decision sustained or agreed should not be charged to the Government. Recommendation that Funds be Put to Better Use. A recommendation by the OIG that funds could be used more efficiently if management took action to implement and complete the recommendations, including: • reductions in outlays; • de-obligation of funds from programs or operations; • withdrawal of interest subsidy costs on loans or loan guarantees, insurance or bonds; • costs not incurred by implementing recommended improvements related to the operations of the establishment, a contractor or grantee; • avoidance of unnecessary expenditures noted in pre-award reviews of contract or grant agreements; • any other savings that are identified specifically. Management Decision. The evaluation by management of the findings and recommendations included in an audit report and the issuance of a final decision by management and concurrence by the OIG concerning its response to such findings and recommendations, including planned corrective actions to remedy weaknesses identified in the report. Final Action. The completions of all actions that GSA management concluded in its management decision were necessary with respect to the findings and recommendations included in the audit report. In the event that GSA management concluded no action was necessary, final action occurred when the management decision was made. Management Actions - Questioned Costs. The following is a list of the different management actions used by GSA management to resolve questioned costs in an audit report. • Audit reports on which management decisions were made during the period: Data pertaining to the number of audit reports on which management decisions were made during the period and the associated amount of disallowed costs was furnished by the OIG. • Write-offs: For the purposes of this report, write-offs are interpreted to represent the difference between the disallowed cost and the amount successfully recovered. Management Actions - Better Use Funds. The following is a list of the different management actions used by GSA management to resolve the "better use" of funds in an audit report. • Better Use Funds: The figure represents amounts cited as "cost avoidance" and "funds to be put to better use," as agreed to by GSA management and the OIG. Prior to April 1990, no funds were identified by the OIG specifically as "funds to be put to better use," and no management decisions were issued based on the consideration of "better use" of funds. • Budget Impact Funds: Funds identified as "budget impact" involve the obligation process. Audit-related savings of these funds, depending on the particular fund involved, may be available for reprogramming. • No Budget Impact Funds: Funds identified as "no budget impact" are composed of estimated and actual amounts, and do not involve obligated monies, and, therefore, cannot be construed as having a material effect on GSA''s appropriated funds. • Audit reports on which management decisions were made during the period: Data pertaining to the number of audit reports on which management decisions were made during the period and the associated dollar amounts agreed to by management were furnished by the OIG. • Value of recommendations that management concluded should not or could not be calculable: Management was unable to determine the award amounts and "better use funds" implemented since the amount is included in the overall award to the prime contractor and savings could not be determined. Appendix U.S. General Services Administration 1800 F Street, NW Washington, DC 20405 www.gsa.gov