JMC State_USAID Consolidation Roadmap - ICASS

State/USAID Consolidation RoadmapTiers Two and ThreeDecember 2009

Version HistoryDate Author Version Change Reference5/16/07S. Koochekzadeh, B. Patterson, M. Collin,S. Meeker, J. Stevenson1.0 Baseline version5/22/07 D. Ergenbright 1.1 Revised version5/29/07 P. Truhn, C. Royalty 1.2 Revised version7/25/07S. Koochekzadeh, B. Patterson, M. Collin,S. Meeker, J. Stevenson1.3 Revised version12/ /09 S. Heckman, A Bond 1.5 Revised for use by Tier 3 postsJMC Joint Transition Roadmap ii www.jmc.gov

Table of ContentsExecutive Summary: ....................................................................................................................... 1Overview of the Consolidated Platform ............................................................................. 3The Joint Overseas Administrative Support Platform (JOASP) Defined ....................... 3Elements of Consolidation .............................................................................................. 3Transition Overview ....................................................................................................... 4Guide to Consolidation ....................................................................................................... 5Managing the Transition Process in Washington ........................................................... 5Managing the Transition Process at Post ........................................................................ 5Service Transition Tables ................................................................................................... 6General Services Transition Tables .............................................................................. 10Key Milestone Timeline ...........................................................................................Configuration of the tables...................................................................................... 5Warehouse Management .................................................................................. 6Expendable Supplies ........................................................................................ 8Leasing ............................................................................................................. 9Motor Pool ................................................................................................... 170Residential & Non-Residential Maintenance ............................................... 192Customs & Shipping .................................................................................... 203Reproduction Services ................................................................................... 14Mail & Messenger and Pouching Services .................................................... 22Administrative Procurement ........................................................................ 236Financial Management (FM) Transition Tables ........................................................... 17FSN Payroll ................................................................................................ A-17Class-B Cashiering....................................................................................... A-1Human Resource (HR) Transition Tables.........................................................................Locally Employed Staff .....................................................................................At Post Language Training ................................................................................Appendix A: General Consolidation Issues ......................................................................................Appendix B: Managing the Process in Washington and at Post .......................................................Appendix C: Section-specific Implementation Plans .......................................................................Appendix D: State and USAID Shared Applications .......................................................................Consolidation Roadmap - i - www.jmc.gov

Executive Summary:In 2006 the Department of State (“State”) and United States Agency for InternationalDevelopment (“USAID”) developed a strategy for consolidating under International CooperativeAdministrative Support Services (ICASS) agreed-upon, duplicative administrative supportservices in co-located overseas missions. The overarching goal of this initiative was toeliminate duplication and non-essential USG presence overseas, and to improve the efficiencyand effectiveness of our management operations. This section will review and discuss thatvision and assess the last two years of the Joint Management Council’s (JMC) efforts to achievethis long term strategic vision.Posts where the two agencies were to be co-located in the same building or compound by the endof FY07 were designated “Tier One” and asked to consolidate in fifteen selected service areas byOctober 1, 2007. Those expecting to move into new embassy compounds (NECs) during FYs08, 09 and 10 were designated “Tier Two” and asked to consolidate the agreed-upon services bythe end of the fiscal year in which they moved to the NEC. Those who were to be co-located inFY11 and beyond were designated “Tier Three” and asked to consolidate the agreed-uponservices when possible, with no firm time frame given. Tier Three posts were later assigned aconsolidation target date of October 1, 2010 and the list of designated services was shortenedfrom fifteen to thirteen.Based in part upon the Tier One and Two experiences, this roadmap is meant to provide arecommended process for remaining Tiers Two and Three to consolidate the designated services.The roadmap outlines the services to be consolidated under ICASS and the collection oforganizational elements -- functions, policies, systems, and processes -- that should beconsidered as State and USAID consolidate administrative support operations at a given post.Here is a brief description of the sections that follow:Consolidated PlatformThis section provides an overview of the administrative support services selected forconsolidation into ICASS [Joint Overseas Administrative Support Platforms (JOASP)] and itsrelationship to the overall management platform at post, which includes all support functionsprovided by both organizations at post and by regional and U.S.-based service centers. Thesection includes a list of the services to be consolidated and a consolidation timeline for planningand implementation. Also identified are the key long-term issues that may need to be resolved.Guide to ConsolidationThis section covers process management, both in Washington and at post. Key elements of theconsolidation process are identified as strategy, governance, and communication. Issues andrecommendations are drawn from existing policies, documented best practices and lessonslearned from Tier One posts.Consolidation Roadmap - 1 - www.jmc.gov

Step-by-Step Consolidation Road MapThis section provides posts detailed instructions to follow for preparing and implementingconsolidation at posts. Important factors to success are introduced, including interagencycooperation, communication, local staff empowerment, and best practices from other posts.Consolidation Tools including Transition TablesThe tables cover each of the targeted services and provide a standard set of milestones. Thetables are grouped into four general areas: General Services, Procurement, Human Resources andFinancial Management. Each group can be removed and distributed separately for use as areference tool.Additional reference materials are in the appendixes of this document:• General consolidation issues;• Managing the process in Washington and at post; and• Section-specific implementation, a sample plan.Numerous other references and guidance documents are posted on the JMC's web page:http://www.jmc.gov/.Consolidation Roadmap - 2 - www.jmc.gov

1 Overview of the Consolidated ICASS Platform1.1 Joint Overseas Administrative Support Platform (JOASP) DefinedThe JOASP is the collection of management support services, and their related capabilities,identified for consolidation under ICASS. JOASP is a subset of the services that compose theoverall Overseas Management Platform, consisting of all services that support overseasoperations. While only 15 selected services are currently targeted for consolidation it isimportant to see these in the context of functions, services, and systems that are common, ifseparately managed, and those that are unique to each organization.The figure below shows the two platforms and their relationship. The Overseas ManagementPlatform is the collection of all management support functions and services, including thoseperformed at post, at regional service centers, and in U.S.-based offices such as the FinancialServices Center in Charleston, South Carolina.By contrast, the JOASP is only a subset of functions within the larger Management Platform.JOASP functions are performed at post, normally as part of ICASS, and consist of thespecifically defined services slated for consolidation. Over time the JOASP may expand toinclude a broader set of services. It could also expand beyond the post level as State and USAIDseek regional or centrally-managed support for their overseas operations.Figure 1 : Overseas Management Platform (OMP) vs. JointOverseas Administrative Support Platform (JOASP)1.2 Elements of ConsolidationConsolidation Roadmap - 3 - www.jmc.gov

The JOASP currently includes the following 15 services, selected by the JMC for Tier One andTier Two posts:o General Services: Warehouse management, expendable supplies, residential andnon-residential leasing, motor pool, residential and non-residential maintenance,customs and shipping, , reproduction services, mail and pouch services;o Financial Management (FM): cashiering, FSN payroll;o Procurement: non-programmatic administrative procurement;o Human Resources (HR): recruitment, “at post” language training for Americans,Eligible Family Member employment, FSN initiatives,Thirteen ICASS cost centers are affected by the above consolidation list.For Tier Three Posts, only thirteen cost centers (all of the above except cashiering andreproduction services) have been designated for mandatory consolidation. Additionalservices/cost centers may be included at the option of the post. See 09 STATE 087452.1.3 Transition OverviewThe JMC has established an overall timeline for each of the three Tiers, as defined in theexecutive summary above. The following timeline was established in 2007, with theunderstanding that State/USAID co-location will occur in the fiscal year immediately prior to theimplementation year, and “virtual consolidation” will take place at the time the agencies are colocated.Figure 2: Original Implementation TimelinesTier One posts completed their “virtual year” in FY-2007 and consolidated the selected costcenters at the outset of FY-2008. Tier Two posts will be co-located between FY-2008 and FY-Consolidation Roadmap - 4 - www.jmc.gov

2010 and began planning the year before co-location, completed their virtual year the year of colocationand consolidated the designated services at the outset of the fiscal year following colocation.Tier Three consists of all posts where State and USAID management services are not co-locatedby the end of FY-2010. Tier Three posts have been directed to develop plans for theconsolidation of administrative support services for warehousing, expendable supplies, leasing,motor pool, residential property maintenance, shipping & customs, administrative Procurement(subject to provisions specified under 08 STATE 69036), mail, messenger, and pouch, LESpayroll (subject to the provisions of 07 STATE 155015), LES recruitment, FSN initiatives,eligible family member programs, and at-post language training.Posts that will move into NECs prior to September 30, 2010 should draw up consolidation plansby September 30, 2009 and implement the plans (virtually) by March 31, 2010, i.e., moveadministrative operations under ICASS, but keep transferred employees on USAID's payrolluntil FY 2011. Missions that are not scheduled to collocate until 2011 or later should developconsolidation plans by December 31, 2009 with the goal of implementing consolidation byOctober 1, 2010. Posts that are not able to consolidate by October 1, 2010 should ask the JMCfor case-specific extensions or waivers using the waiver process posted on the JMC web site.For additional Tier Three guidance refer to: 09 State 087452.2 Guide for Consolidation2.1 Managing Consolidation in WashingtonThe JMC has refined its previous guidance based on the Tier One experience, revising keydocuments, posting these on the JMC web site (www.jmc.gov) and sending telegraphic updatesto the field. Among the guidance documents on the web site are a revised Governance StructureMemorandum of Agreement, detailing Washington roles and responsibilities within the JMC. ACommunication Strategy describes methods of disseminating guidance to the field and amongWashington offices. The JMC working groups have developed charts, templates and otherconsolidation aids, mostly posted on the JMC site but some posted on separate web pages linkedto the larger site. The full JMC, including State’s Under Secretary for Management andUSAID’s Deputy Administrator, meets quarterly, with minutes and other records of the meetingsposted on the web site. (Regular meetings have not been scheduled in the absence of a newUSAID Administrator but will resume when a new appointee takes office.) The JMCdirectorate, a steering group consisting of senior agency representatives and support teammembers, meets frequently, sometimes weekly. Working groups get together as needed, usuallya few times per quarter. Regional bureau representatives from both agencies, typically executivedirectors or their deputies, serve as intermediaries between the JMC and overseas posts, roundingout the JMC membership.2.2 Managing Consolidation at PostConsolidation Roadmap - 5 - www.jmc.gov

Experience has shown that leadership and communication are the most important components ofa successful consolidation. The Chief of Mission (COM) should empower agency heads,Management Officers (MO), Executive Officers (EXO) and other key managers in both agenciesto make the necessary decisions. The COM should indicate that he/she is fully behind her/hismanagement team and expects them to get the job done for the greater good of the mission andthe U.S. government, in the spirit of interagency cooperation. Mission managers in turn shouldwork to establish a clear implementation plan, first clearing it with the local ICASS Council, andthen communicating the plan to all employees, American and Locally Engaged Staff (LES). TheCOM or Deputy Chief of Mission (DCM) should serve as the senior “champion” forconsolidation, establishing clear lines of authority for the consolidation process and developing alocal governance structure that establishes and empowers a committee or working group tomanage the transition. Ideally, the local working group is co-chaired by the senior managementofficer at State and executive officer at USAID. In addition to planning the transition, theworking group should develop a communication strategy ensuring plans and other informationare promptly disseminated to mission members and that the COM, DCM and regional bureaurepresentatives are kept fully informed of the group’s activities.3.1 Essentials for Success:3 Step-by-Step InstructionsStrong support and teamwork from the COM, DCM and USAID Mission Director are crucial tothe success of this effort. Therefore the two most important ingredients for successfulconsolidation are:a. Powerful front office support andb. Effective communication, both between State and USAID service providers and betweenthe service provider community and its customers.State MOs and USAID EXOs must ensure that post leadership is fully briefed, involved, andsupportive of the upcoming consolidation effort.Communication must be maintained throughout the consolidation process. Post leadershipshould receive regular progress reports, as well as timely notification of any problems likely torequire higher-level resolution. Lines of communication must be opened and maintainedbetween State and USAID service providers, customers, the Post ICASS Council, and hostcountry national employees.State and USAID are both foreign affairs agencies and share many similarities, particularly in theoverseas environment. However, they are still two independent organizations with discretecorporate cultures and programmatic needs that must be understood and respected.3.2 Organize the Consolidationa. Establish the Consolidation Working Group and sub working groups.Consolidation Roadmap - 6 - www.jmc.gov

The Consolidation Working Group will develop the detailed plans to implement the JointManagement Platform. It should be co-chaired by the State Department MO and USAID EXO.Other members may include the State Department Financial Management Officer, USAIDController, and U.S. Direct Hire (USDH) and LES/foreign service national (LES/FSN)employees from State and USAID functional areas that will be consolidated. Larger missionsmay wish to establish working subgroups to address consolidation of individual service areas.All successful consolidation efforts to date have empowered LES/FSNs to help develop solutionsto consolidation’s challenges.Working Group and Subgroups are tasked with:1 Identifying the processes currently used in both organizations to deliver services tocustomers;2 Evaluating the capabilities and resources of the two current organizations;3 Recognizing “Best Practices” of both organizations and incorporating these into thenew combined organization;4 Identifying differences or obstacles which must be overcome, and proposing viablesolutions;5 Developing the structure of the new organization (including preparation of anorganization chart);6 Monitoring and recording progress (including running a tally of completed as well aspending items);7 Developing communications, i.e., regular briefings, newsletters, messagedistributions, to report on the progress of consolidation activities; and8 Rumor control -- some degree of apprehension should be expected, and rumors willspread without regular and effective communications.3.3 Work of Consolidationa. OPTIMIZE THE ORGANIZATION: Section 4 of this guide provides“Service Transition Tables” that should be used by the working groups,along with a review of the Collaborative Management Initiative (CMI)process maps, to develop the most efficient, cost effective andcustomer-oriented service model.b. OPTIMIZE USE OF EXISTING STAFF: The new consolidatedorganization must benefit from the existing expertise and managementskills of senior LES/FSNs, both State and USAID. To enhance teambuilding,some posts have found it advantageous to divide their nowlargersections into teams, with one team led by a senior State LES andthe other by a senior USAID LES, with the subordinates a mixture ofemployees of both organizations. For example, in one post, a shippingsection was divided into an import team and an export team; aConsolidation Roadmap - 7 - www.jmc.gov

maintenance section was divided into a short-term-leased team and agovernment-owned team; and so forth.c. IDENTIFY BEST PRACTICES: Consolidation of administrativeservices should not be viewed as simply “signing up for ICASS”.Instead, consolidation affords Post s an opportunity for to retool andimprove their service delivery methods, incorporate the best practices ofboth organizations and improve service delivery to all ICASS customersat Post. Through process mapping and the use of Service TransitionTables the working groups can identify current best practices of the twoagencies and select them for use in the consolidated organization.d. REVIEW AND REDRAFT SERVICE STANDARDS: Both theUniform Service Standards and post-specific ICASS and USAIDservice standards must be reviewed by the working group. In the caseswhere a Uniform Service Standard exists, the working group shouldensure the new consolidated organization is structured to meet theminimum standard. In cases where no Uniform Service Standard exists,the working group should review the current ICASS and USAID servicestandards for post, which may be similar, to ensure that futurerequirements are met. Once the working group has completed its work,the revised standards should be approved by the local ICASS Council.e. COMMUNICATE WITH CUSTOMERS: Town hall meetings shouldbe held with customers prior to consolidation and throughout theprocess as needed, to introduce the concepts and goals of consolidationand to allow customers to ask questions and hear how the delivery ofservices might be affected. Such communication is vital to the successof any consolidation effort and cannot be overemphasized. Town hallmeetings or similar communication efforts will also allow new serviceproviders to introduce themselves and their new procedures, forms,computer screens, etc., and will enhance customer relations.Additionally, posts may wish to consider use of the CLO newsletterarticles, video presentations, slide shows and other types of media toacquaint customers with new procedures and minimize rumors.f. WRITE THE CONSOLDATION PLAN: Sample plans are available onthe JMC website and as Appendix C below. Posts may find servicedefinitions, budget guidance and a wealth of other information on theJMC web site at http://www.jmc.gov/. Unlike at Tier One and Twoposts, Tier Three Posts do not have to submit consolidation plans toWashington. Instead each Tier Three Post has been asked to developits own plan, according to its own needs. Tier Three posts do not haveto share their written plans outside of the mission.Consolidation Roadmap - 8 - www.jmc.gov

4.1 JMC and ICASS WebsitesThe JMC website, http://www.jmc.gov, provides a wealth of information including consolidationtools, templates, examples, best practices, budget guidance, policy, and FAQs to assist poststhrough the consolidation process.The ICASS website, http://www.icass.gov, provides consolidation working groups, ICASSpolicy, customer service standards and ICASS guidance useful in establishing and evaluatingservice provision at post.The CMI website, http://diplopedia.state.gov/index.php?title=CMI:Playbook, contains theUniversal Service Standards, process maps and other tools to ensure new consolidated operationsconform to worldwide ICASS standards and are arranged to provide optimum services.4.2 Service Transition TablesTransition tables are a reference tool for managers at post. The tables help identify potentialissues and milestones for each of the three general groups of services designated forconsolidation (General Services, Financial Management, and Human Resources). All threegroups share the same milestone timelines and configurations. Some posts may already be atmore advanced stages of the consolidation process or have already consolidated certain services.4.3 Key Milestone TimelinePosts should develop a notional timeline for each service to be consolidated. The figure below isan illustrative timeline with key milestones listed as M1 through M8. The “phases” on the rightside of the timeline represent specific deadlines or amounts of time, as defined by post.Normally the timing will be based on the time remaining until the end of the “virtual year”,although calendar dates can also be used in lieu of phases. . In most cases the milestones willoverlap in time, with new tasks begun before older tasks are completed. M7 and M8 below aretwo examples.Key MilestonesPer Consolidating Service Phase 1 Phase 2 Phase 3 Phase 4 Phase 5 Phase 6M1: MO and EXO Develop Consolidation:Governance, Communication and Transition Strategy M1M2: Optimize Operating Procedures M2M3: Consolidated Staffing Pattern M3M4: Update ICASS Service Standard M4M5: Approval from Post ICASS council M5M6: Commence consolidated operations M6M7: Public AffairsM7M8: Consolidation Tracking Tool M8Milestone TimelineConsolidation Roadmap - 10 - www.jmc.gov

LegendPost Management MilestonesPost ICASS working GroupMilestones4.4 Configuration of Transition TableThe top of each table contains a synopsis of the service, taken from the ICASS handbook (6FAH-5). The columns consist of service components; issues (potential obstacles); milestones(suggested taskings); and outcomes (anticipated results). Working groups should develop theirown transition tables using the following ones as models, taking care to clear any additionalmilestones and outcomes with the management leads of both State and USAID. The milestonesmay then be configured into a timeline such as in the above example, to be used not only forlocal target-setting, but as a communication tool for others at post and for sharing with interestedWashington offices.Consolidation Roadmap - 11 - www.jmc.gov

4.4.1 Illustrative Warehouse Management TableServiceWarehouseManagementService NameDescriptionWarehouse Management (nonexpendable supplies)Operation of warehouses, including accountability and order processing. Generally includesrequisitioning, inventory control, warehousing, delivery of furniture and equipment, anddisposal. This service includes office/residential furniture, equipment and appliances orother nonexpendable items but does not include office supplies, spare parts or otherexpendable items.Service Components Issues Milestones OutcomesBusiness Policy• State/ICASS and USAID service standardsand requirements may differ• Convert to new uniform service standards that satisfyboth State and USAID requirements• Review updated standards with other ICASScustomers at Post• Implement uniform standards.• Uniform service standards: 07 State 028296Financial Management• Cost of converting USAID records to NEPAor ILMS.• Residential furniture/equipment may not bepooled yet.• Trust fund property may require separateaccounting.• Equipment and vehicle assets may exceedrequirements for single warehouse.• Identify and request funding• Convert non-pooled furniture/equipment to pooled.• Review limitations on trust fund property includingtransfer, ownership, and title• Transfer, sell or otherwise dispose of excess vehicles,forklifts, shelving and other warehouse equipment.• Conversion of records during next annualinventory• Pooled furniture and equipment• Proper accountability of trust fund assets• Disposal proceeds remitted promptly to fundingagency.• Refer to “ICASS Shared Services AssetTransfer, Ownership, Title and Use Policy” --06 State 71874Human Resources• Staffing levels may exceed requirementsfor consolidated warehouse operation.• Different position requirements betweenState and USAID may result in different jobclassifications for consolidated staff• Warehouse staff may be unfamiliar withother organizations’ warehousing policies,systems, and processes• Determine staffing requirements of consolidatedwarehousing service, produce new org. chart• Document position requirements for each position atconsolidated warehouse, CAJE new positions• Examine whether consolidated section can berightsized by attrition or early retirement, offer buy-outsusing end-of-year funds• Invoke existing RIF plan, with fair notice to all thosewho may be affected and transparent application toemployees of both agencies -- see 06 State 193073• New staffing pattern and org chart• Fully-qualified staff in each new position• Refer to “Guidance on JOASP: LES” 06 State193073Consolidation Roadmap – Service Transition Tables - 12 - www.jmc.gov

ServiceWarehouseManagementService NameDescriptionWarehouse Management (nonexpendable supplies)Operation of warehouses, including accountability and order processing. Generally includesrequisitioning, inventory control, warehousing, delivery of furniture and equipment, anddisposal. This service includes office/residential furniture, equipment and appliances orother nonexpendable items but does not include office supplies, spare parts or otherexpendable items.Service Components Issues Milestones OutcomesInformation Technology• Some posts may have unaligned inventorytracking systems: USAID using Barscanand State using WebNEPA• Evaluate consolidated warehousing systemsrequirements• Plan migration to WebNEPA or ILMS as part of nextinventory• Train employees on WebNEPA or ILMS application• Consolidated property accountability ITsystems• Refer to “Software Applications in Support ofJOASP” 07 State 048604Consolidation Roadmap – Service Transition Tables - 14 - www.jmc.gov

4.4.2 Illustrative Expendable Supplies TableServiceExpendableSuppliesService NameDescriptionExpendable SuppliesRequisitioning, shipment, receiving, storage, issuance and electronic record-keeping for official supplies, spareparts and accountable US government forms.Service Components Issues Milestones OutcomesFinancial Management• State and USAID may have different policyfor the distribution of expendable supplycosts: direct charged or included in postoperational budget• Identify current policy for charging expendablesupplies, if different from universal ICASS standards(direct charge, dollar value of supplies issued)• Local ICASS council approves above policy forfinancial accounting of expendable supplies, if needed• Standardized billing procedures for expendablesuppliesLogistics & Procurement• Current stock re-ordering levels may not beoptimized for requirements of participatingagencies• State and USAID may use different localsupply catalogues• Analyze joint requirements for State and USAID,adjust min/max stocking levels accordingly• Develop standardized supply catalog for mostexpendable items (office supplies only)• Combined expendable supplies operations• Uniform service standards, per 07 State028296• Joint Administrative Supply CatalogueInformation Technology• State and USAID may be using differentinventory software applications• Convert inventory systems to standardized web.PASSIT program -- see “Software Applications in Support ofJoint Overseas Management Support Platform” 07State 48604• Consolidated expendable supply inventoryreportsAdministration • Supply needs may be better served bycompetitive sourcing or just-in-timedelivery.• Consider commercial alternative approaches, ifavailable, such as blanket purchase agreement withOffice Depot, to eliminate the need for US governmentwarehousing of suppliesConsolidation Roadmap – Service Transition Tables - 15 - www.jmc.gov

ServiceMotor PoolService NameDescriptionMotor PoolIncludes the following services for passenger and multi-use vehicles: 1) operate a central motor pool for thepurpose of transporting personnel for official business or other authorized use (per 14 FAM 418.2-3(D)); 2)garaging and minor upkeep of vehicles (cleaning, checking tire pressure, etc.); 3) dispatch vehicles in accordancewith post policies and USG regulations; 4) maintain required reports and records.Service Components Issues Milestones OutcomesInformation Technology• State and USAID may use different workorder tracking systems or vehicle costaccounting software• Evaluate fleet management system requirements• Plan migration to Web.PASS applications for internalwork order and cost accounting systems• Consolidated Motor Pool IT systems• Refer to “Software Applications in Support ofJOASP” 07 State 048604• Train employees on Web.PASS applicationsConsolidation Roadmap – Service Transition Tables - 18 - www.jmc.gov

4.4.5 Illustrative Residential & Non-Residential Maintenance TableServiceMaintenanceService NameDescriptionResidential & Non-Residential MaintenanceMaintain buildings and building systems by performing or contracting for preventive maintenance, routine repairs andemergency services. Non-residential maintenance includes grounds care and janitorial service. Residential maintenanceincludes make-ready repairs for new occupants and repair of government-owned furniture and equipment, according to postpolicy and the terms of the lease. Identifiable expenses that can be attributed to a specific job are direct-charged to therecipient’s agency, including overtime, paint, spare parts, replacement equipment and other materials. Non-identifiable,non-specific costs such as regular wages and the purchase of tools and equipment are shared under the appropriate ICASScost center.Service Components Issues Milestones OutcomesBusiness Policy• State and USAID standards andrequirements may differ• Move to new uniform service standards• Review updated service standards with the otherICASS customers at Post• Uniform service standards, per 07 State028296Human Resources• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Maintenance employees transferred fromUSAID may be unfamiliar with ICASSpolicies, systems, and processes; ICASSpersonnel may be unfamiliar with USAIDspecificrequirements• Determine staffing requirements of consolidatedmaintenance services, produce new org. chart• Document position requirements for each position inconsolidated facilities maintenance office, re-CAJEpositions as needed• Determine whether consolidated section can be rightsizedby attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair noticeto those affected and transparent application toemployees of both agencies -- see 06 State 193073• Train consolidated maintenance staff in revised newpolicies, systems, processes• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employeesAdministration• There may be disparities in currentcondition of properties• State and/or USAID may have existingcontracts with custodial or gardening firms• Determine minimum local standards for residential andnon-residential properties• Where necessary, invoke lease terms to obtain bettercompliance from building owners• Upgrade or replace substandard properties whenowners fail to perform necessary repairs• Consolidate custodial contracts and personnel• Consolidated residential & non-residentialmaintenance program• Improved compliance with lease terms• Custodial and gardening contracts reconciledand combinedConsolidation Roadmap – Service Transition Tables - 19 - www.jmc.gov

4.4.7 Illustrative Reproduction Services TableServiceReproductionService NameDescriptionReproduction Services – not consolidated in Tier III PostsThis service applies in those posts that provide printing and reproduction services through a central facility to ICASScustomer agencies. (Each post must establish its own set of standards in accordance with its capabilities or postcircumstances.) This service may include print documents, business cards, official invitations, flyers, posters, etc.Service Components Issues Milestones OutcomesHuman Resources• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Copy center employees transferred fromUSAID may be unfamiliar with ICASSpolicies, systems, and processes; ICASSpersonnel may be unfamiliar with USAIDspecificrequirements• Determine staffing requirements of consolidatedservices, produce new org. chart• Document position requirements for each position inconsolidated office, re-CAJE positions as needed• Determine whether consolidated section can be rightsizedby attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair noticeto those affected and transparent application toemployees of both agencies -- see 06 State 193073• Train consolidated staff in revised new policies,systems, processes• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employeesAdministration• State and/or USAID may have existingcontracts or blanket purchase agreementswith local printing firms• Consolidate printing/copying contracts and personnel• Contracts reconciled and combinedConsolidation Roadmap – Service Transition Tables - 21 - www.jmc.gov

4.4.8 Illustrative Mail & Messenger and Pouching Services TableServiceMail &Messengerand PouchingService NameDescriptionMail & Messenger and Pouching ServicesMail & Messenger, Pouching: a) receive and distribute incoming pouch materials, both classified and unclassified; b)Prepare and forward outgoing pouches, classified and unclassified; c) maintain related records, d) sort, distribute andpick-up/deliver mail from local and APO/FPO or DPO sources; e) receive and deliver registered and express delivery(e.g., DHL, UPS, FedEx, etc.) shipments; f) transport mail to and from the airport; g) coordinate with local customs andairline personnel on mail shipments; and h) provide local messenger service.Service Components Issues Milestones OutcomesBusiness Policy• State and USAID standards andrequirements may differ• Move to new uniform service standards• Review updated service standards with the otherICASS customers at Post• Uniform service standards, per 07 State028296Human Resources• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Employees transferred from USAID maybe unfamiliar with ICASS policies, systems,and processes; ICASS personnel may beunfamiliar with USAID-specificrequirements• Determine staffing requirements of consolidatedservices, produce new org. chart• Document position requirements for each position inconsolidated office, re-CAJE positions as needed• Determine whether consolidated section can be rightsizedby attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair noticeto those affected and transparent application toemployees of both agencies -- see 06 State 193073• Train consolidated staff in revised new policies,systems, processes• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employeesConsolidation Roadmap – Service Transition Tables - 22 - www.jmc.gov

4.4.9 Illustrative Administrative Procurement TableServiceAdministrativeProcurementService NameDescriptionNon-programmatic procurementPurchase goods and services using simplified acquisition procedures; requisitions (e.g., against GSA Schedules); deliverytickets against Blanket Purchase Agreements (BPAs); solicitation of competitive quotes for purchases in excess of the micropurchasethreshold; non-personal services contracts; preparation of competitive and sole source solicitations; micro-purchasecards and petty cash. Service also includes award and administration of local contracts, including identifying vendors, writingspecifications, and negotiating terms; and preparation of documents for all types of procurement actions, consistent with U.S.government and agency regulations.Service Components Issues Milestones OutcomesBusiness Policy• Unclear boundary between administrative• Clearly defined scope of consolidatedand programmatic procurementprocurement operationFinancial ManagementHuman ResourcesInformation Technology• State and USAID standards andrequirements may differ• Accounting procedures for processingpayment may be unclear.• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Employees transferred from USAID maybe unfamiliar with ICASS policies,systems, and processes; ICASS personnelmay be unfamiliar with USAID-specificrequirements• Some posts may have different State andUSAID automated procurement tracking• Determine the scope of the combined operation,carefully defining program versus admin. procurement(see 07 State 075695 and 08 State 016562)• Move to new uniform service standards• Review updated service standards with the otherICASS customers at Post• Develop clear payment procedures for administrativeprocurement, indicating which financial system will beused for USAID payments• Determine staffing requirements of consolidatedservices, produce new org. chart• Document position requirements for each position inconsolidated office, re-CAJE positions as needed• Determine whether consolidated section can be rightsizedby attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair noticeto those affected and transparent application toemployees of both agencies -- see 06 State 193073• Train consolidated staff in revised new policies,systems, processes• Move to State’s Web.PASS system for shared services• Updated service standards• Unambiguous invoice processing, no danger oflate or missed payments• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employees• Single system for documented sharedprocurement activities.Consolidation Roadmap – Service Transition Tables - 23 - www.jmc.gov

4.5 Illustrative Financial Management (FM) Transition TablesThe purpose, key milestone timelines and configuration of the Financial Management Transition tables are identical to those listed forGeneral Services on page 5 above.4.5.1 Illustrative FSN PayrollServiceFSN PayrollService NameDescriptionFSN PayrollReport and maintain records of time and attendance, pay, benefit, leave, allowances, and tax records; coordinatescheduled periodic payments for LE Staff retirement/insurance plans to the host government; follow up on lost payrollchecks and reconciling payroll problems with the payment center.Service Component Issues Milestones OutcomesBusiness Policy• USAID has begun using a new electronictime and attendance (T&A) reportingsystem• State and USAID standards andrequirements may differFinancial Management• At posts where FSN payroll operations are not alreadyconsolidated, the T&A portion of this cost center shouldnot be combined .Other portions may be consolidated,and local ICASS councils may determine that USAIDshould receive a modified workload count, recognizingthat the agency handles its own T&A reporting in house• Move to new uniform service standards• Review updated service standards with the other ICASScustomers at Post• See 07 State 155015• Uniform service standards, per 07 State028296Human Resources• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Employees transferred from USAID maybe unfamiliar with ICASS policies,systems, and processes; ICASS personnelmay be unfamiliar with USAID-specificrequirements• Determine staffing requirements of consolidatedservices, produce new org. chart• Document position requirements for each position inconsolidated office, re-CAJE positions as needed• Determine whether consolidated section can be rightsizedby attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair notice tothose affected and transparent application to employeesof both agencies -- see 06 State 193073• Train consolidated staff in revised new policies,• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employeesConsolidation Roadmap – Service Transition Tables - A-1 - www.jmc.gov

ServiceFSN PayrollService NameDescriptionFSN PayrollReport and maintain records of time and attendance, pay, benefit, leave, allowances, and tax records; coordinatescheduled periodic payments for LE Staff retirement/insurance plans to the host government; follow up on lost payrollchecks and reconciling payroll problems with the payment center.Service Component Issues Milestones Outcomessystems, processesConsolidation Roadmap – Service Transition Tables - A-2 - www.jmc.gov

4.5.2 Illustrative Class-B CashieringServiceClass-BCashieringService NameDescriptionClass-B Cashiering– not consolidated in Tier III PostsPetty cash advances and reimbursements, accommodation exchange, reverse accommodation exchange, collections and cashpayment vouchers. Processing receipts from the sale of U.S. Government property. (6 FAH-5 H-341.10-5)Service Component Issues Milestones OutcomesBusiness Policy• State US disbursing office (USDO)cashiering policies and systems forCashier services are essentially the same.• Unless the post requests, and the JMC approves, acase-specific exemption, posts should consolidate theircashiering operations as soon as State and USAIDoffices are co-located.• The overall cash advance from the USDO should beexamined in light of the new, larger operation andadjusted accordingly• Consolidated cashiering operations.Financial ManagementHuman Resources• Some USAID posts outsource cashierservices for certain types of disbursementsto local banks, when local bankingregulations allows and when financiallyadvantageous. This should not affectconsolidation and should be allowed tocontinue.• Combined staffing levels may exceedrequirements of consolidated platform• Different work assignments and duties mayresult in different CAJE levels• Employees transferred from USAID maybe unfamiliar with ICASS policies,systems, and processes; ICASS personnelmay be unfamiliar with USAID-specificrequirements• Determine which, if any, USAID cash transactionsshould continue to be outsourced after consolidation.• Since the workload count for this service is number ofstrip codes processed, there is no need for a modifiedworkload count -- only the cashier services USAIDactually uses will be charged under ICASS.• Determine staffing requirements of consolidatedservices, produce new org. chart• Document position requirements for each position inconsolidated office, re-CAJE positions as needed• Determine whether consolidated section can berightsized by attrition or early retirement incentives; offerbuy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair notice tothose affected and transparent application to employeesof both agencies -- see 06 State 193073• Train consolidated staff in revised new policies,systems, processes• All cashier transactions performed at theEmbassy, i.e., not eligible for USAID’soutsourcing arrangements at local banks,are performed by the State/ICASS cashier• Refer to 07 STATE 088872, para 5 forfurther guidance.• Updated staffing plan and org. chart• Updated Training Module• Humane treatment of redundant employees,with RIF plan used only as a last resort• Open transition process, with robust rumorcontrol and minimal impact on morale ofexisting employeesConsolidation Roadmap – Service Transition Tables - A-3 - www.jmc.gov

4.6 Illustrative Human Resources (HR) Transition TablesThe purpose, key milestone timelines and configuration of the Human Resources transition tables are identical to those listed forGeneral Services on page 5 above.4.6.1 Locally Employed StaffServiceLocally Employed StaffService NameDescriptionLocally Employed Staff (LE Staff) (includes: FSN Initiatives, FSN Recruitment, Eligible Family Member (EFM) Program)LE Staff recruitment, FSN initiatives, EFM programs, and post language instruction. With respect to recruitment of LE Staff, post shouldnote that USAID is not a signatory to HR/OE’s LE staff Recruitment Policy. Nonetheless, we have agreed that where USAID and State areco-located, ICASS HR sections will still advertise all USAID vacancies, receive applications, forward applications to the hiring office,arrange interviews, and seek medical and security clearances for candidates selected by the hiring office. Once USAID LES are hired,they will participate in the local compensation plan, health care, and retirement plans. However, as USAID FSNs are hired under the PSCemployment mechanism which is unique to USAID, management of USAID FSNs will continue to be provided by USAID. USAID willcontinue to perform the actual personal services contracting through which its local employees are hired, unless in the future USAIDdecided to adopt the PSA hiring mechanism used by other agencies at post, including State. USAID will continue to maintain its own hiringand classification authority. See State 00088872 for more information.Service Components Issues Milestones OutcomesBusiness Policy• Differences in approach to• Standard recruitment/hiringadvertising vacant positionspolicies for all LE staff at post• Differences in approach to EFMhiring• Differences in LES hiringmechanisms (FMA, PSA, PSC, etc.)• State and USAID HR standards andrequirements may differ• Develop standard recruitment policies for post, clear with Post EmploymentCommittee -- see LE Staff Recruitment Policy Guidebook at State HR web page:http://hrweb.hr.state.gov/prd/hrweb/oe/recruitment/upload/recruitmentguidebook.pdf• Develop coordinated policy on EFM hiring between State and USAID -- see 04 State199609 and 273708 at JMC web page: http://jmc.state.gov/• Establish post policy to determine the correct hiring mechanism only after acandidate is selected -- see Recruitment Policy Guidebook at above web page.• Move to new uniform service standards; review updated standards with the otherICASS customers at post• Uniform service standards, per 07State 028296Financial Management• Differences in PSA and PSC hiringfor USAID LES moving to ICASS• Follow instructions in 07 State 053356, “HR Update”• Fair, transparent transitionprocess for USAID LEStransferring to State/ICASSConsolidation Roadmap – Service Transition Tables - A-4 - www.jmc.gov

ServiceLocally Employed StaffService NameDescriptionLocally Employed Staff (LE Staff) (includes: FSN Initiatives, FSN Recruitment, Eligible Family Member (EFM) Program)LE Staff recruitment, FSN initiatives, EFM programs, and post language instruction. With respect to recruitment of LE Staff, post shouldnote that USAID is not a signatory to HR/OE’s LE staff Recruitment Policy. Nonetheless, we have agreed that where USAID and State areco-located, ICASS HR sections will still advertise all USAID vacancies, receive applications, forward applications to the hiring office,arrange interviews, and seek medical and security clearances for candidates selected by the hiring office. Once USAID LES are hired,they will participate in the local compensation plan, health care, and retirement plans. However, as USAID FSNs are hired under the PSCemployment mechanism which is unique to USAID, management of USAID FSNs will continue to be provided by USAID. USAID willcontinue to perform the actual personal services contracting through which its local employees are hired, unless in the future USAIDdecided to adopt the PSA hiring mechanism used by other agencies at post, including State. USAID will continue to maintain its own hiringand classification authority. See State 00088872 for more information.Service Components Issues Milestones OutcomesHuman Resources• Combined staffing levels mayexceed requirements ofconsolidated platform• Determine staffing requirements of consolidated services, produce new org. chart • Updated staffing plan and org.chartInformation Technology• Different work assignments/dutiesmay result in different CAJE levels• Employees transferred from USAIDmay be unfamiliar with ICASSpolicies, systems, and processes;and vice versa• Disparate personnel data due toseparate record-keeping by Stateand USAID on web.PASS• Document position requirements for each position in consolidated office, re-CAJEpositions as needed• Determine whether consolidated section can be right-sized by attrition or earlyretirement incentives; offer buy-outs using end-of-year funds• If necessary, invoke existing RIF plan, with fair notice to those affected andtransparent application to employees of both agencies -- see 06 State 193073• Train consolidated staff in revised new policies, systems, processes• Standardize data entry parameters for Post Personnel, coordinate with data entrypersonnel at both agencies• Updated Training Module• Humane treatment of redundantemployees, with RIF plan usedonly as a last resort• Open transition process, withminimal impact on moraleStandardized personnel reportingfor both agenciesConsolidation Roadmap – Service Transition Tables - A-5 - www.jmc.gov

4.6.2 Illustrative At Post Language TrainingServiceAt Post LanguageTrainingService NameDescriptionAt Post Language TrainingEstablish and administer foreign language training as needed to bring Americans in language designated positions to fullperformance level for their respective positions. Lower priority needs may be served on a reimbursable, space-available basis.Service Components Issues Milestones OutcomesBusiness Policy• Different language training policy/guidelines • Align post policy/guidelines to comply with 13 FAM 230 • Consistent language training program for• Language training objectives may varyand 13 FAH-1 H-250, uniform State/USAID postboth agencieslanguage program guidance (12/07)• To the extent possible, incorporate training needs oflower priority customers (personnel in non-languagedesignatedpositions, adult family members, MSGs,etc.)Human Resources• Disparate language training staff, hiringmechanisms• Consolidated language programFinancial Management• Post may not have a post language officerassigned to• Post may not be taking advantage ofsupplemental funding offered by FSI• Create consolidated post language training capability,preferably by non-personal services contracting at localbi-national center or training institute.• Appoint post language officer to oversee programs• Review FSI grant application procedures, considerapplying for supplemental language training funds• American officer assigned to oversee newprogram• Maximum funding devoted to post languagetraining programConsolidation Roadmap – Service Transition Tables - A-6 - www.jmc.gov

contributions. This makes USAID much more concerned with the cost of administrativesupport, at least for its OE funded programs -- any additional support costs mean lessmoney spent on actual programs. Recommendation: State/ICASS and the ICASSCouncil should recognize USAID’s need to limit support costs, keeping them at a bareminimum without shifting them to State or other agencies.• Winners and losersIssue: When State and USAID support operations are consolidated, additional costs inone area may not be offset by savings in the same area. The extra costs borne by posts,for example, may result in savings at the Washington level, and vice versa. Or costsborne by one agency or one post may result in savings to the other agency or at anotherpost. Regionalization of services might shift costs to or from other posts.Recommendation: The JMC recognizes there will be winners and losers in theconsolidation process and will make every effort to get regional bureaus and others to redistributefunds accordingly. Although costs may be higher for some, the anticipated endresult is overall savings to the U.S. taxpayer.Consolidation Limits• IT consolidationIssue: Per 07 State 14000, posts “should hold consolidation of IT infrastructure inabeyance” until the completion of Washington-level systems consolidation projects.Final decisions on consolidation of IT services will be made after pilot posts have testedthe new systems.Recommendation: An interim solution should be put in place: USAID employeesshould be given more access to the State system for Web.PASS applications (e.g., viaeServices), at the same time both agencies migrate to Web.PASS and ILMS for localICASS applications. Implementation of this recommendation is currently underway atmost posts and is reflected in several of the above transition tables.• Financial Management ConsolidationIssue: The two agencies operate on separate financial management software, makingcombined transactions problematic. Consolidation of this support function may be manyyears away.Recommendation: Post managers should look for common issues and seek commonsolutions that will be easier to consolidate when the time comes. For example, if USAIDmoves to commercial cashiering services or off-shore vouchering, State/ICASS shouldconsider doing the same. At minimum, local policies on vendor payments, taxreimbursements, blanket travel orders, etc. should be coordinated and standardized.When possible, travel management contracts, blanket purchase agreements, fuel purchasecontracts, utility payments and other local transactions should be combined.Appendix B: Managing the Process in Washington and at PostThe following is a list of management issues that Posts share with Washington during thetransition process. JMC working groups and regional bureau representatives are available toConsolidation Roadmap B-2 www.jmc.gov

answer questions and guide individual posts as they confront these issues. Names and contactnumbers of JMC working group chairs can be found on the JMC website: http//jmc.state.gov.Posts may consult directly with JMC representatives from both agencies by sendingquestions/concerns to JMCDirectorate@state.gov.Managing the Transition in WashingtonJMC Strategy• Consolidation PlansIssue: Posts must carefully plan their consolidation activities. At the same time, the JMCis responsible for helping posts that have problems and for accounting to the OMB, perthe above discussion.Recommendation: Per 07 State 69288, posts should plan their consolidation work informats that can be shared with FSN committees, ICASS Councils and other interestedparties. Although Tier Three consolidation plans do not need Washington approval, theJMC asks posts to use standard formats that can be shared with Washington offices, if theneed arises..• Unique Requirements at PostsIssue: While standardized guidance has been provided, some posts may have uniquerequirements that call for customized solutions.Recommendation: Upon request, the JMC will provide post-specific guidance orestablish consolidation support teams made up of subject matter experts, regional bureaurepresentatives and others. Support will normally be offered in a conference call orDVC.JMC Communication Strategy• JMC WebsiteIssue: One of the biggest challenges is ensuring a continuous information flow amongJMC players and overseas posts.Recommendation: The JMC website (www.jmc.gov) serves as a repository of guidance,model plans and other information on State/USAID management consolidation. Thewebsite contains cables, planning documents, Working Group issues, a list of frequentlyasked questions, best practices and lessons learned, JMC consolidation cost analysis andother reference tools and links.• Guidance on Consolidation from WashingtonIssue: There is a sense of conflicting messages from Washington to the field regardingthe consolidation of administrative services.Recommendation: The two headquarters offices in Washington will continuecommunicating as consistently and clearly as possible, with the understanding thatsometimes even the most unambiguous language is subject to varying interpretations.Posts are encouraged to develop their own solutions whenever possible, with theunderstanding that a “can do” attitude towards consolidated operations will make it easierConsolidation Roadmap B-3 www.jmc.gov

for Washington to agree on any necessary waivers or exceptions. Varying interpretationsshould not be used as a reason not to consolidate. On the contrary, available guidanceshould be interpreted in favor of consolidation whenever possible. Please refer toAppendix B for a list of all cable guidance on consolidation. Cables can also be found onthe JMC website: www.jmc.gov.Managing the Transition Process at PostPost-specific Strategy• Transition PlansIssue: As consolidation deadlines approach, written plans are helpful for implementationand communication purposes -- they provide an incentive for all players to act in atimely, systematic way, according to an agreed-upon schedule.Recommendation: The DCM and USAID Mission Director should task the transitionteam with developing a phased transition plan, per the guidance in section 3 above. Theplan should identify points of contact, document the order in which the services will beconsolidated, and provide associated timelines. The plan should be approved by theWorking Group members, as well as the ICASS council and by all levels of postmanagement in both agencies. It can then be used as a communication tool at post andsubmitted to Washington via regional bureaus for JMC review and approval. Generaltransition plans can be used to develop section-specific implementation plans such as thesample in Appendix C below.• GovernanceIssue: As outlined in Section 2 above, post leadership should establish a governancestructure that clarifies roles and responsibilities in connection with State/USAIDconsolidation.Recommendation: The COM or DCM should serve as the senior “champion” forconsolidation, establishing clear lines of authority for the consolidation process, alongwith a local governance structure that identifies and empowers a committee or workinggroup to manage the transition. Ideally, the local working group is co-chaired by seniormanagers at State and USAID. The working group should develop a communicationstrategy, one that establishes and develops mechanisms for disseminating information tomission members and keeps the COM, DCM and regional bureau representatives fullyinformed of the group’s plans and activities.Consolidation Roadmap B-4 www.jmc.gov

Appendix C: Section-specific Implementation Plans(The following documents are sample implementation plans drafted by a Tier One posts. Please refer tothe JMC website for additional samples or write JMCDirectorate@state.gov for more information.)Plan for the Consolidation ofAgreed-upon Administrative Servicesbetween State/ICASS and USAIDBACKGROUNDIn 2004, the Office of Overseas Buildings Operations moved up construction of a New EmbassyCompound (NEC) in __________from 2008 to 2004. The primary motivation for advancing theproject was that present facilities were not able to protect USG employees from the increasingthreats of violence in downtown. None of the present facilities meet current security guidelines,especially setback requirements.The project will bring all agencies, including USAID, into one building. For the first time alarge USAID mission, with 144 employees will be housed in a chancery and not a separatefacility on the compound. At present, USAID maintains a full service administrative supportunit and subscribes only to the most basic of ICASS services.Post Management in coordination with the Office of Rightsizing and the State-AID JointManagement Council have been asked to adopt and operate a Joint Management Platform thatwill streamline administrative operations under one ICASS invoice, jointly managed by Stateand USAID personnel working side by side; by October 2007.On November 9, 2006 the Ambassador approved the formal establishment of a ConsolidationWorking Group to develop the detailed plans to implement the Joint Management Platform forby October 2007.DEVELOPING THE PLANThe Management Office and the USAID EXO have, over the past three years, worked towardspromoting cooperation between STATE and USAID and improving management effectiveness,while reducing costs, through the elimination of duplication and the combining of administrativefunctions.The goal as described in the original guidance was to establish a plan that would meet the needsof all customers while preserving the independent ability of each agency to function effectively –the Shared Services approach. A plan utilizing this approach was developed and signed by allICASS agencies at post on May 23, 2006.While this initial guidance to posts recommended that either State or AID provide individualmanagement services within the context of a Shared Services model, (also known as AlternateService Provider - ASP), the recently completed Strategic Vision (State 120279) adopted adifferent approach called the Joint Management Platform. Posts such as ____ that had developedmerger plans based on the Shared Services Model were asked to discontinue moving in thatConsolidation Roadmap C-1 www.jmc.gov

direction and instead streamline and unify administrative operations under one ICASS invoice ina jointly managed State and USAID administrative management platform.To implement this goal the Management Counselor and USAID Executive Officer proposed andthe Ambassador approved the establishment of a new Consolidation Working group to developthe detailed implementation plans to consolidate agreed-upon duplicative administrative servicesinto one joint administrative platform, as requested in STATE 00166405.The consolidation working group established parameters to guide their planning. To the extentpossible these parameters were followed. The parameters were as follows:• Decisions will be made together• End products should be more efficient with improved customer service• Consolidation of LE staff will be managed in a fair and transparent manner.• To the extent possible, no good performing employee should be terminated.• Reductions in personnel should be done through normal attrition.• In cases where reductions-in-force are necessary; State and USAID LE staff positionswill be competed together on the same RIF registers and according to the samecriteria, to ensure that the very best staff are brought together into each consolidatedsection.• Standard operating procedures will be reviewed and compared to determine bestpracticesThis plan to consolidate agreed-upon duplicative administrative services into onestreamline joint administrative management platform, reflects an approach that intends tocombine the best employees, equipment and processes from existing operations to ensurethat ICASS customers benefit from the improved services. The overarching goal ofreducing costs to the American Taxpayer, decreasing duplication and increasingefficiencies. The plan:Drafted by:Executive Officer _______________________ ____________DateManagement Counselor _______________________ ____________DateCleared by:Deputy Chief of Mission _______________________ ____________DateUSAID Mission Director _______________________ ____________DateApproved by:Ambassador _______________________ ____________DateConsolidation Roadmap C-2 www.jmc.gov

Post ICASS Council Approval_______________________Appendices:-Collocation of USG Facilities-Enhancing State/USAID Collaboration-State/USAID Pooled Housing Guidance-Shared Services Program____________DateConsolidation Roadmap C-3 www.jmc.gov

Agreed Upon Services to be Consolidated, per REFTEL 54462Agreement 1This Plan will consolidate the following services at post:I. Human Resources;II.III.IV.Residential and non-residential maintenanceMotor PoolNon-expendable property (warehouse) and expendable suppliesV. LeasingVI.VII.VIII.Customs and ShippingReproduction, mail and pouchProcurement – does not include USAID programmatic contracting/grants or USAIDadministrative procurements entered into the GLAAS (Global Acquisition andAssistance System).Agreement 2The following services will not be consolidated at post at this time:I. Information TechnologyThe IT aspects of this consolidation process are the most complicated and potentially the mostcostly. Post will hold off all consolidation of IT infrastructure and functions until key jointdecisions are made in Washington.Consolidation Roadmap C-4 www.jmc.gov

Right-Sizing per REFTELS 00009205 and 00166405The required Rightsizing study was completed October 25, 2004. ______ received final fromright-sized numbers from M/PRI Rightsizing on October 23, 2006 for the functions to beconsolidated. Those numbers are:DOS DHDOSLESAID AIDDH LES SR FSN Totals1D/XOGS11 4 1 USMGT 1 FS01 1HR 7 1 8SuggestedCutsIM 1ISO/1IPO/1IMO/2IMS 16 3 19Cashier 1 1 2 1 CashierGSOSplSupGSO Asst1 GSO FS02 163 41 FSN 10 204 3 Drivers1 GSO FS03 1 JanitorFAC1 FAC FP021 FuelAttendant1 Carpenter1Painter/Mason1 ShipmentAsstThese numbers represent M/PRI Rightsizing’s best estimate of the savings that will be achievedas a result of consolidation. Further guidance from M/PRI Rightsizing provides flexibility,allowing Post to adjust which particular positions should be cut as long as the total number ofsuggested cuts from the combined sections remains the same.State and USAID leadership, as well as OMB agree that a consolidated operation will requirefewer staff and enable Post to provide more efficient service at lower cost to the taxpayer.Current Post Staffing – Compared to M/PRI Rightsizing numbers.Current Embassy and USAID staffing numbers were “cross-walked” and compared to M/PRIRightsizing right-sizing numbers. The analysis is as follows:Current Post Post Consolidated M/HR Consolidated DifferenceManagement: 5 3 3 0HR : 7 7 8 (1)Mail/Pouch etc 4 3 4 (1)Cashier 1 1 2 (1)Payroll 1 0 not provided 0GSO/FM 189 198 199 (1)The proposed Post consolidated staffing numbers for agreed upon services are 4 less thanM/HR consolidated right-sizing numbers.Consolidation Roadmap C-5 www.jmc.gov

Agreement 3To maintain the right-sizing staff goals the Embassy and USAID have agreed to the following:1) Maintain a Hiring Freeze on all vacancies within the sections affected by consolidation -to maintain the rightsizing staffing numbers through October 2007. Vacancies should bereviewed carefully by the Consolidation working group prior to advertising/hiring. Anyadditional positions must re reviewed by the Consolidation Working Group prior tohiring.2) The use of attrition to the greatest extent possible in achieving further cuts in redundantpositions.3) Embassy and USAID employees encumbering functionally equal redundant positions(regardless of individual agency grade) will be competed equally using the criteriaspecified for a RIF to determine which employee will encumber the consolidatedposition. The employee not selected will be re-trained and reassigned, to the extentpossible, within the mission prior to being subjected to a RIF.4) In the event a RIF is necessary to further reduce positions, Post will rank-order State andUSAID employees in each functional category together. For example, if State andUSAID have a combined motor pool of 30, and we need to reduce that to 25, and noneare scheduled for retirement in the next year, we would rank-order all 30 driversaccording to the Post RIF plan, and RIF the five with the lowest scores, regardless ofagency affiliation.5) M/PRI Rightsizing’s mandate from Congress requires that every COM world-wideconduct a rightsizing exercise at least every five years. M/PRI Rightsizing conducted aright-sizing study for the mission in October 2004. The next right-sizing study shouldoccur in either the Spring or Fall of 2009. This will coincide well with the move andsettlement into the NEC. Post will use the next right-sizing study to review staffing afterconsolidation and conduct competitive sourcing analyses as part of their normalrightsizing submissions.(The following document is another sample implementation plan drafted by a Tier One post. Please refer to the JMCwebsite for additional samples or contact the JMC Mailbox for more information.)CONSOLIDATING SHARED ADMINISTRATIVE SUPPORT SERVICES* RESIDENTIAL MAINTENANCE *EXECUTIVE SUMMARYThis report outlines the proposed consolidation of STATE ICASS and USAID into one unified MaintenanceUnit. Supporting details are included in this summary.Consolidation Roadmap C-6 www.jmc.gov

PROPERTIES TO BE MAINTAINED• 24 Government Owned Property (GOP)• 1 GOP Vacant Lot• 4 GOP Awaiting Confirmation (current AID Request)• 181 Short-term Lease (STL) Residences• 1 STL Non-Residential (Office Space)• 2 STL Club houses (Non Residential)• 1 STL WarehouseMAINTENANCE CAPABILITIES AND RESOURCESA combined organization structure has been developed. The new organization structure has a supervisor running thePreventive Maintenance (PM) program. This will include all emergency generators and government-issuedappliances. He will be responsible for conducting the Maintenance and Repairs (M&R) at all the governmentownedproperties, and carrying out OBO required Annual Inspections. His team will also support the New EmbassyCompound (NEC) for welding and generator maintenance.The second supervisor will oversee Make-Readies. He will be responsible for the M&R in all the STLs and willcoordinate landlord work with the Housing office.The consolidated work force will consist of the following personnel:STAFF TOTAL TEAM 1 TEAM 2 COMMONElectrician 3 2 1Carpenter 4 2 2Plumber 7 4 3Appliance Techs 3 2 1Generator Techs 4 4Painter 2 2Welder 1 1Maintenance Man 5 3 2Trades Helper 1 1Trades Helper(Contractor) 1Maintenance Foreman 2 1 1Maintenance Inspector 1 1Work Control Clerk 3 2 1Chauffer 1 1Maintenance Supervisor 2 1 1Total 40 21 17 2Basic Functions of the Supervisor 1:• Incumbent shall manage/oversee the residential maintenance operations for the 24 GOP and serve asthe COR and project manager for Post’s 7901 Maintenance and Repair [M&R] Projects and 7902Special M&R Projects.• Oversee the Residential Preventive Maintenance for 24 GOPs and 193 STL properties.• Oversee and manage the maintenance plan for post’s Emergency Generators.• Ensure that there is effective communication between management, various offices, staff, andcustomers.• Oversee and manage implementation of post policies and programs.• Back up for Supervisor 2.Consolidation Roadmap C-7 www.jmc.gov

Basic Functions of the Supervisor 2:• Incumbent shall manage the day-to-day M&R for the 188 STL properties.• Oversee major/minor make-ready works required for these properties and serve as the COTR for allconstruction work.• Work hand-in-hand with Supervisor 1 regarding preventive maintenance schedules for emergencygenerators and other appliances.• Ensure that there is effective communication between management, various offices, staff, andcustomers.• Oversee and manage implementation of post policies and programs.• Back up for Supervisor 1.Completed Items• Org. Chart• Best Maintenance Practices• Vehicle distribution• Make-Ready Checklists• Consolidated Space planning/cost estimates (7902 funding requested)Differences/Obstacles• Procurement services• Funding issues• Staffing Issues - Need for re-CAJEing due to increased volume, EER’s, pay disparity, positiondescription and educational standards• Work Order system (Best Practices) including cross-training• Harmonization of Make-Readies – (Maintenance/Housing Limitations)• Harmonization of Landlord responsibilities (Leasing guidelines) including: Response times,Performing PM on L/L property, Security upgrades/Improvements, etc• Performance standards to be met• Escort serviceItems to be Completed• Space Development at R-04• Continue to establish new Standard Operating Procedures (SOPs)• WebPASS Issues – inventory integration, equipment scheduling, PM schedules• DOSNET expansion – crossover from AIDNETConsolidation Roadmap C-8 www.jmc.gov

Consolidated Residential Maintenance OrganizationD/FMB. GreshamSupervisor 1J. MianoSupervisor 2S. MachariaDriverS. NijiruSuppliesAs assigned byGSO/WHSEMaintenance/InspS. NgatiaForemanS. NjagiForemanC. OpondoPlumbers - 4EAL. NdunguP. NgigiW. NjengaC. OtienoElectricians - 2 EAJ. MashuaF. HingaP.Odhiambo-MMAppliance – 2 EAJ. MwemaT. KyaloJ.Aura-Trade/HLPainters – 2 EAJ.GathunguS.NgureCarpenters – 2 EAA.GitukuJ.WambugiJ.Karanja-MMWeldersJ. OwitiP. MuguPlumbers – 2 EAJ. OcheroP. NyingiElectricians – 1EAS. WeluM. Mwangi-MMNashon MwandokuAppliance – 3 EAP. MaweuO. KimaniJ. Ingosi-MMGenerator Tech – 4EAF. OnyandoJ. RattaJ.MwanikiA. LumasaiP.Njagi-Trades/HLCarpenters – 2 EAK. MbuguaJ. NdegwaWork Control ClerkF. KiraguWork Control ClerkA.KiokW.KiambaConsolidation Roadmap C-9 www.jmc.gov

(The following document is another sample implementation plan drafted by a Tier 1 post. Please refer to the JMCwebsite for additional samples or contact JBAT (JBAT@state.gov) for more information.)Approximated List of meeting dates/sitesFebruary 16, 2006February 23, 2006March 02, 2006March 08, 2006March 16, 2006April 20, 2006April 27, 2006October 5, 2006October 16, 2006Final Report: Service Consolidation Working GroupsICASS Customs & Shipping Working GroupAll meetings held at the Embassy with one site visit to USAID buildingEXECUTIVE SUMMARYThis report outlines the proposed consolidation of State ICASS and USAID into one unifiedCustoms & Shipping Unit. Supporting details are included in this summary.SHIPMENTS & ACTIVITIES FOR State/USAID HANDLED IN FY2006 ARE OUTLINED• 650 State/USAID employees inbound shipments [House Hold Effects (HHE)/ Unaccompanied Baggage(UAB)] annually• 1200 assorted supplies airfreight shipments annually• 290 Container shipments for supplies annually• 300 Personal Owned Vehicles for registration annually• 294 Government Owned Vehicles for registration annually• 300 Driver’s licenses processed annually• 160 State/USAID employees’ outbound shipments (HHE/UAB) annually• 30 Neighboring Mission’s outbound supplies annually• 1000 VAT applications to be processed annually.CUSTOMS & SHIPPING CAPABILITIES AND RESOURCESA combined organization structure has been developed. The new organization structure has a General ServicesOfficer (GSO) working with 2 supervisors and 9 clerks. Each of the clerks will be assigned incoming employee’sshipment in totality e.g. UAB, HHE, Privately Owned Vehicle (POV), Pets, etc.The first supervisor facilitates inbound shipments clearance (Imports). This will include;All duty exemption processing with Ministry of Foreign Affairs (MoFA)Clearance at Airport,ICD (Inland Container depot).Registration of POVs and Government Owned Vehicles (GOVs).The second supervisor will oversee;All pack-outs,Customs export documentation,Invoices,VAT exemptions,Vehicle de-registration,Acquisition of driver’s licenses & Pet licenses (in/outbound)Consolidation Roadmap C-1 www.jmc.gov

Expeditor services.The consolidated work force will consist of the following personnel:Supervisors 2Shipment Assistants 2Shipment Clerks 7Total team players 11Notes:First and Second Supervisor will alternately back-up each other.It will be supervisor’s responsibility to ensure rotation on a period to be agreed upon so as to enable each teamplayer to have an all-round exposure.Expediting will be done by all on rotation basisCOMPLETED ITEMS• Org. Chart• Best PracticesHarmonized Third Party Insurance Risk with same expiry dates for USAID for POVs, State may borrow a leaf• SOPs/Handbook/PERFORMANCE STANDARDSIMPORTS - HHE/UAB/CONSUMABLESDocuments RequiredAirway Bill/Bills of LadingPacking list/InventoryNotification of arrival of employeePin copy of the employeeTime Frame21 working days from the date of receipt of above documents. However, air shipments may be cleared by priorrelease arrangement available at the discretion of the customs department. In such a case, the shipments may becleared and delivered in 5 working days.IMPORTS – MISSION SUPPLIESDocuments requiredBills of lading/Airway billsPacking lists or itemized purchase orderPin copy of the MissionTime frame21 days to clear and deliver from the day of receipt of documentsIMPORTS - POVsDocuments RequiredA. InvoiceB. Bills of lading / Airway BillsC. Notarized Passport copyD. Copy of PIN cardE. Original foreign logbook for used vehicles duly translated for non-English speaking countries.Time FrameConsolidation Roadmap C-2 www.jmc.gov

21 days from the date of receipt of all documents.Registration follows and is complete within 21 days from the day of customs release. Logbook (Sample Post) isissued within 90 working days from the day of registration.IMPORTS – OFFICIAL VEHICLESDocuments RequiredPro forma invoice/vehicle title* (*if it’s a used vehicle)Bill of lading/Airway billMission Pin copyTime Frame21 daysLOCAL PURCHASES – USED DUTY FREE POVsDocuments requiredOriginal Sample Post logbookApproved PRO 1C (Authority to dispose a duty free vehiclePrevious owner’s copy of passport / ID and PIN cardEmployee’s copy of passport and PIN cardPrevious owner’s PRO 1B and Import Entry forms which cleared the vehicle.Two transfer forms duly signed by the previous ownerRegistration form where the status of the acquiring employee is different from the selling employee or purchasefrom different diplomatic agencyTime Frame45 days to clear with customs and the Registrar of Motor Vehicles.LOCAL PURCHASES – USED DUTY PAID POVsDocuments requiredSample Post original log bookTwo transfer forms duly signed by the previous ownerPrevious owner’s copy of passport / ID and PIN cardEmployee’s copy of passport and PIN cardTime Frame30 days to effect transfer and re-registrationLOCAL PURCHASES – NEW POVs / OFFICIAL VEHICLESDocuments RequiredPro forma invoice with the customs bonded warehouse number indicated on it.Time Frame21 days to release the vehicle from customs bonded warehouse, and another 14 days to register the vehicleACQUISITION OF SAMPLE POST DRIVER’S LICENSEDocuments RequiredTwo application forms (available at customs and shipping sec.) duly filled and signed by employee.Two passport sized photographsState site / International driver’s licenseEmployee’s passport copyEmployee’s Resident cardConsolidation Roadmap C-3 www.jmc.gov

Time Frame14 days to get an interim driver’s license, and another 90 working days to get the permanent driver’s license.VAT EXEMPTIONS - OFFICIAL / PERSONALDocuments requiredA. Pro forma Invoice(s) showing the followinga.) The name of the vendor and purchaser clearly.b.) The vendor’s PIN & VAT numbers.c.) The amount of VAT charged. Statements like “16% VAT inclusive” are not allowed.Time Frame90 working days for approval of waiversEXPORTS - HHE/UAB14 days advanced booking for pre-pack survey required ahead of the packingDocuments RequiredTravel authorizationShipments’ destination address (including telephone number and email addresses)Time FrameShipments’ should be shipped out 7 days from pack-out date subject to availability of flights.EXPORTS – POVsDocuments RequiredTravel authorizationOriginal logbook/Certificate of ownershipPOVs’ destination address (including telephone number and email addresses)Pin CopyPassport copyTime FrameShipments should be shipped out 21 days from pack-out.Performance standardsNeed to update the handbook and SOPs especially all that touch on GOKDIFFERENCES/OBSTACLES• Need to train USAID staff on military shipments• Funding issues• Need to review use of BPA/Contract for the Freight forwarders and packers• Need to develop an IT based tracking system• Cross training on handling of diplomatic courier• Performance standards and customer service levels be agreed on• Cross training for all to enable clear understanding of the logistics function in an all round basisITEMS TO BE COMPLETEDSpace Development either at State or USAID buildingContinue to establish new Standard Operating Procedures (SOPs)/Performance StandardsWeb PASS – Official shipments trackingWeb Gram – tracking personal effects shipmentsConsolidation Roadmap C-4 www.jmc.gov

PERFORMANCE STANDARDSIMPORTS - HHE/UAB/CONSUMABLESDocuments RequiredAirway Bill/Bills of LadingPacking list/InventoryNotification of arrival of employeePin copy of the employeeTime Frame21 working days from the date of receipt of above documents. However, air shipments may be cleared by priorrelease arrangement available at the discretion of the customs department. In such a case, the shipments may becleared and delivered in 5 working days.IMPORTS – MISSION SUPPLIESDocuments requiredBills of lading/Airway billsPacking lists or itemized purchase orderPin copy of the MissionTime frame21 days to clear and deliver from the day of receipt of documentsIMPORTS - POVsDocuments RequiredInvoiceBills of lading / Airway BillsNotarized Passport copyCopy of PIN card (Sample Post)Original foreign logbook for used vehicles duly translated for non-English speaking countries.Time Frame21 days from the date of receipt of all documents.Registration follows and is complete within 21 days from the day of customs release. Logbook (Sample Post) isissued within 90 working days from the day of registration.IMPORTS – OFFICIAL VEHICLESDocuments RequiredPro forma invoice/vehicle title* (*if it’s a used vehicle)Bill of lading/Airway billMission Pin copyTime Frame21 daysLOCAL PURCHASES – USED DUTY FREE POVsDocuments requiredOriginal sample post logbookApproved PRO 1C (Authority to dispose a duty free vehiclePrevious owner’s copy of passport / ID and PIN cardEmployee’s copy of passport and PIN cardPrevious owner’s PRO 1B and Import Entry forms which cleared the vehicle.Consolidation Roadmap C-5 www.jmc.gov

Two transfer forms duly signed by the previous ownerRegistration form where the status of the acquiring employee is different from the selling employee or purchasefrom different diplomatic agencyTime Frame45 days to clear with customs and the Registrar of Motor Vehicles.LOCAL PURCHASES – USED DUTY PAID POVsDocuments requiredSample post original log bookTwo transfer forms duly signed by the previous ownerPrevious owner’s copy of passport / ID and PIN cardEmployee’s copy of passport and PIN cardTime Frame30 days to effect transfer and re-registrationLOCAL PURCHASES – NEW POVs / OFFICIAL VEHICLESDocuments RequiredPro forma invoice with the customs bonded warehouse number indicated on it.Time Frame21 days to release the vehicle from customs bonded warehouse, and another 14 days to register the vehicleACQUISITION OF SAMPLE POST DRIVER’S LICENSEDocuments RequiredTwo application forms (available at customs and shipping sec.) duly filled and signed by employee.Two passport sized photographsState site / International driver’s licenseEmployee’s passport copyEmployee’s Resident cardTime Frame14 days to get an interim driver’s license, and another 90 working days to get the permanent driver’s license.VAT EXEMPTIONS - OFFICIAL / PERSONALDocuments requiredA. Pro forma Invoice(s) showing the followingThe name of the vendor and purchaser clearly.The vendor’s PIN & VAT numbers.The amount of VAT charged. Statements like “16% VAT inclusive” are not allowed.Time Frame90 working days for approval of waiversEXPORTS - HHE/UAB14 days advanced booking for pre-pack survey required ahead of the packingDocuments RequiredTravel authorizationConsolidation Roadmap C-6 www.jmc.gov

Shipments’ destination address (including telephone number and email addresses)Time FrameShipments’ should be shipped out 7 days from pack-out date subject to availability of flights.EXPORTS – POVsDocuments RequiredTravel authorizationOriginal logbook/Certificate of ownershipPOVs’ destination address (including telephone number and email addresses)Pin CopyPassport copyTime FrameShipments should be shipped out 21 days from pack-out.Consolidation Roadmap C-7 www.jmc.gov