Dr. Chuck Court Requirements Center Director Defense Systems Management College Fort Belvoir, VA Building Stronger Partnerships to Control Costs

Hot Topic Forum – Requirements – April 2013 Requirements Problems and Solutions When do we have the best opportunities to affect program costs? Problems with Requirements – GAO Report The requirements development process: What goes wrong? How do we make it right? Configuration Steering Boards (CSB) –Who sits on the CSBs –What the CSBs do The need to understand tradeoffs Efforts to reform requirements development What DAU is doing to help build partnerships 2

Hot Topic Forum – Requirements – April 2013 A IOC B Material Solution Analysis Engineering & Manufacturing Development Operations & Support C FRP Decision Review FOC Technology Development Post CDR Assessment MDD Production & Deployment High ability to influence LCC 70-75% of cost related decisions have been made Less ability to influence LCC 85% of cost related decisions have been made Little ability to influence LCC 90-95% of cost related decisions have been made Minimum ability to influence LCC 95% of cost related decisions have been made JCIDS SponsorMateriel Developer Initial Capabilities Document Capability Development Document Capability Production Document Ability to Influence Program Affordability 3 Pre-EMD Review

Hot Topic Forum – Requirements – April 2013 Life Cycle Cost (LCC) Determination Pre-MSA Actual Funds Spent AB P&D O&S Approximately 90% of LCC determined here TD EMD C Control Costs Here: “Sweet Spot” The Best Time to Control CostsAffordabilityReductionOpportunities * Notional curves based on a combined Kaminski, DAU, & AMR Research Inc. data… Approximately 10% of LCC Spent Life Cycle Affordability Determination* 4

Hot Topic Forum – Requirements – April 2013 GAO Report : Weapons Acquisition Reform, December 2012 Demanding, inflexible requirements Unproven technologies Not meeting suitability requirements during operational testing Deficiencies –High failure rates –Disappointing improvements in reliability, availability, and maintainability –Limited program performance –Increased operation and support costs 5

Hot Topic Forum – Requirements – April 2013 Greater Emphasis on Requirements Raise cost and schedule matters before we establish performance objectives –A good requirement is attainable –A good requirement is necessary –A good requirement is orderly The JROC and the CSBs ensure we consider cost, schedule, and performance trade-offs Include combatant commanders in requirements development 6

Hot Topic Forum – Requirements – April 2013 The Four Questions behind Requirements Development What do we want? What do we need? What do we need to do? What can we afford? What do we tell Requirements Managers? 7 Choose: –Have it cheap –Have it fast –Have it done right

Hot Topic Forum – Requirements – April 2013 Be Careful What You Ask For What does it really take to do the mission? –Do you really need 40 knots? –Do you really need 9 Gs? How do you know that’s what you need? Are you aware of the associated costs? –Unreliable technologies –Lower availability –Derived requirements Where is the trade space? –Never: Threshold = Objective –The significance of each Key Performance Parameter (KPP) –What should be a Key System Attribute (KSA)? 8

Hot Topic Forum – Requirements – April 2013 What Goes Wrong? Why Do Things Go Wrong? Tradeoffs involve multiple points of view –Performance includes suitability, maintainability, reliability, and availability Analysis must incorporate multiple expertise Recognize the cost drivers Cultural barriers degrade communications Translating requirements into specifications –A specification is not a requirement –Beware the derived requirement –Beware the “Requirements Creep” 9

Hot Topic Forum – Requirements – April 2013 Big “A” Acquisition Small “a” Acquisition Big “A” Acquisition Resources (PPBE) Defense Acquisition System (DAS) Strive for the overlap! Get JCIDS, DAS, and PPBE to work together Funding instability Insufficient resource trade space Budget not properly phased or of insufficient magnitude to support planned development Immature technologies Inadequate systems engineering Inadequate requirements flow-down, traceability, or decomposition Insufficient schedule trade space Inadequate implementation of Earned Value Management System Lack of time and assets for testing Lack of JROC-validated requirements documents for basic program (ICD, CDD, CPD) Inadequate requirements for basic program and any increments Requirements “creep” Critical dependence on external programs with developmental issues Inter- and intra-departmental stakeholder coordination and support 10 Requirements (JCIDS)

Hot Topic Forum – Requirements – April 2013 Configuration Steering Boards: Who? The Acquisition Executive of each DoD Component will chair a Configuration Steering Board for ACAT I and ACAT IA programs Broad executive membership: –Senior representatives from the Office of the USD(AT&L) –The Joint Staff –Representatives from the office of the chief of staff of the Armed Force concerned –Other Armed Forces representatives where appropriate –The Military Deputy to the CAE –The PEO DoD Components should also form appropriate level and composition Configuration Steering Boards for lower ACAT programs. 11

Hot Topic Forum – Requirements – April 2013 Configuration Steering Boards (CSBs): What Do They Do? Establish Service, OSD, and Joint Staff reviews –Review requirements and significant technical configuration changes during development and throughout program lifecycle –Identify and mitigate improperly defined or scoped requirements that adversely impact cost, schedule and risk Drive routine cost and capability-informed reviews of military requirements throughout a program’s development and lifecycle Maintain high visibility on requirements creep Maintain close coordination and collaboration between Program Offices and Requirements Managers 12 Build Stronger Partnerships

Hot Topic Forum – Requirements – April 2013 Opportunities to Build Stronger Partnerships Get the Requirements Managers and the Program Offices working together RMs need insight into the acquisition processes –Science and Technology –Systems Engineering –Test and Evaluation –Logistics The common Requirements Manager complaint: “Chuck, I go to those acquisition reviews, and I have no idea what they are talking about.” Program Managers, Program Offices, and RMs must recognize what each contributes 13

Hot Topic Forum – Requirements – April 2013 Definition and Roles of the Requirements Manager Requirements Manager: A military Service member or DoD civilian charged with assessing, developing, validating, and prioritizing requirements and associated requirements products through the Joint Capabilities Integration and Development System (JCIDS) process Requirements Managers act for the warfighters –To the requirements development process (JCIDS) –To the "Big A" acquisition community Establish and maintain streamlined communications –DoD includes many different points of view –Every manager and decision maker needs a common understanding of what the warfighters need The Requirements Manager must advocate effective solutions while avoiding “Requirements Creep” 14

Hot Topic Forum – Requirements – April 2013 What Does an RM Do at the Action Level? Analysis: Determine requirements –Identify what the warfighter needs to do –Requirements and not “Desirements” Document: Communicate requirements –Develop JCIDS documents –Staff and validate those documents Oversee the DAS and PPBE capability delivery –Reinforce process discipline –Avoid “Requirements Creep” –Be the “Manager in the Muddy Boots” 15 Establish the Need – Follow the Program

Hot Topic Forum – Requirements – April 2013 IOC Technology Development Engineering & Manufacturing Development Production & Deployment Operations & Support FRP Decision Review FOC Post-CDR Assessment Materiel Solution Analysis Materiel Development Decision B A C Program Initiation The Defense acquisition System 16 Pre-EMD Review Acquisition usually assigns a Program Manager and begins a Program Office at Milestone B Most DAU training concentrates on when the money is being spent, not on when the system makes the truly expensive decisions

Hot Topic Forum – Requirements – April 2013 LRIP FOT&E Technology Demonstrated Initial Key Performance Parameters/Key System Attributes (KPPs/KSAs) Acquisition Strategy T&E Master Plan (TEMP) SEP MS “B” Final Design Developmental T&E (DT&E) Operational Assessments Revise KPPs/KSAs Acquisition Strategy Acquisition Program Baseline (APB) TEMP SEP MS “C” Develop, Test, Produce & Field MS “A” Evolutionary Acquisition Materiel Solution Analysis Technology Development Engineering & Manufacturing Development Production & Deployment CDD CPD SECDEF Select Joint Concept Activity Capabilities-Based Assessment / Other Policy Identify Capability Requirements Develop CONOPS Select Materiel Solution Low Rate Initial Production (LRIP) Initial Operational T&E (IOT&E) Acquisition Strategy APB TEMP SEP Military Services OSD/Joint Staff Analysis of Alternatives (AoA) Technology Development Strategy (TDS) Test & Evaluation (T&E) Strategy (TES) System Engineering Plan (SEP) OSD (AT&L, CAPE), Services and OSD (DOT&E) -- Joint Staff (JROC) Analysis of Alternatives (AoA) Competitive Prototyping Joint Staff / Joint Requirements Oversight Council / OSD Defense Acquisition: JCIDS and the DAS 17 SSA Products Integrated Security Constructs Joint Concepts ICD Materiel Development Decision Sponsor- Approved CDD Identification of Capability Requirements CCMD Operational Planning CBAs & Other Studies Exercises/Lessons Learned Outputs Mission & Problem Capability Gaps Tasks Performance Conditions Operational Risk Non-Materiel Approaches Materiel Approaches Recommendations President, SECDEF & Chairman: Strategic Guidance JCTDs/JUON/JEON/ Experiments JIEDDO Initiatives Defense Business Sys Validates ICD Reviews AoA Results Validates CDD Validates CPD JROC action for JROC Interest programs (ACAT I & IA) Getting The Front End Right is Key

Hot Topic Forum – Requirements – April 2013 How Is JCIDS Evolving? Consolidated instructions FCB joint prioritization within portfolio Tripwire processes Review previously validated requirements and programs The “IT Box” construct Formalized Capability Gap Assessment (CGA) process Greater J-7 role to emphasize non-materiel solutions Streamlined joint staff procedures and timelines –Greater flexibility to revise requirements Three lanes: Deliberate, Emergent, Urgent 18

Hot Topic Forum – Requirements – April 2013 Most Pressing Problems Program Managers and Requirements Managers must appreciate the entire spectrum of their respective jobs –Tradeoffs –Provisioning for sustainment not conducted until after fielding –Logistic sustainment not included throughout the process What does the PM bring? –Budget –Depth –Technical possibilities and technical limitations What does the RM bring? –Mission expertise, practicality, operational depth and perspective Need for RMs with logistics experience 19

Hot Topic Forum – Requirements – April 2013 FY 2007 National Defense Authorization Act (NDAA) Develop a program to certify requirements personnel Address: –Interrelationship between requirements, PPBE, and acquisition –Developing joint operations requirements –Early baselining of program requirements and “the adverse effect” of changing or adding requirements –Importance of technology maturity and alternatives What Is DAU Doing? 20

Hot Topic Forum – Requirements – April 2013 Certification Training Levels CLR 101 Introduction to JCIDS RQM 110 Core Concepts for Requirements Management RQM 310 Advanced Concepts and Skills RQM 403 Requirements Executive Overview Workshop RQM 413 Senior Leader Requirements Course hours hours4 ½ days1 dayTailored A, B, C B, CCD (1-3 Star / SES) D (4-Star / Agency Head) Required Training Level Guidelines A Contribute to the Requirements generation and capability development process in various capacities to include: JCIDS analysis, subject matter or domain expertise, document staffing and coordination and / or administrative support – Requirements Originators and Support B Significantly involved with Requirements generation and capability development in specific capacities, i.e. study leadership, planning, writing, adjudicating comments, and facilitating inter-organizational development and coordination of Requirements documents – Requirements Writers and Developers C Designated by organizational leadership for advanced Requirements instruction; Primary duties involve leadership / supervisory roles in requirements generation and capability development ; Organizational representative in pertinent program management and JCIDS forums to include FCB Working Group, FCB, JCB and JROC meetings – Requirements Supervisors, Presenters, and Trainers D GO/FO/SES – Validate and / or approve documents; Provide senior leadership and oversight of JCIDS Analysis and Staffing: Enforce Requirements standards and accountability – Requirements Validators and Prioritizors 21

Hot Topic Forum – Requirements – April 2013 Requirements Management Training Progression RQM 110 Core Concepts for Requirements Management RQM 310 Advanced Concepts and Skills CLR 151 Analysis of Alternatives CLR 250 Capabilities-Based Assessments CLR 252 Developing Requirements RQM 403 Requirements Executive Overview Workshop (REOW) CLR 101 Introduction to JCIDS CoreCore PlusExecutive Level CLR 030 Environment, Safety and Occ. Health Deployed In revision RQM 413 Senior Leader Requirements Overview 22

Hot Topic Forum – Requirements – April 2013 What Is the Acquisition Community To Do? It all comes down to better communications –Understand the importance of early technology decisions (in JCIDS, in the CSBs, and in acquisition) to cost, schedule, and performance PMs must: –Be realistic about what things cost –Project realistic schedules –Deliver what the warfighter needs RMs must: –Be careful what they ask for –Stay on top of the solutions we can get for realistic costs –Avoid “transom management” – Participate throughout development 23

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Hot Topic Forum – Requirements – April 2013 Characteristics of a Good Requirement Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented 26

Hot Topic Forum – Requirements – April 2013 Measurable Requirements need to be –Quantifiable –Verifiable How –Inspection –Analysis –Demonstration –Simulation –Testing 27 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Attainable Must be: –Feasible –Achievable Build with today’s technology Within available time Within available money Technology Readiness Levels 28 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Necessary Is it necessary to accomplish the mission? What are the fiscal constraints? No room for –Nice to have –Desires –Frivolous 29 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Correct Accurate to what needs to be delivered Does the requirement track back to the Measures of Effectiveness (MOEs) and Measures of Performance (MOPs) in the ICD? What capability is needed in the field? Users drive this –They know what they need –Involve them early 30 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Unambiguous Multiple readers = same understanding Interpretation of any requirement is not good Do not use: –User-friendly –Fast –Easy –Flexible –State-of-the-art –Maximize/minimize –Efficient –Semi-automatic 31 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Orderly Prioritize requirements Use KPP, KSA and Attribute tables –Can prioritize within “tiers” There are constraints –PM will do trade-offs –Priorities will help their decisions 32 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Organized Strategy to task Trace thru ID to Development to Verification Group into categories (missions / functions) This cuts down on –Duplication –Inconsistencies –Contradictions 33 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Results-Oriented What does it have to DO? Capability based What are the needs? Not how to accomplish the mission 34 Measurable Attainable Necessary Correct Unambiguous Orderly Organized Results-Oriented

Hot Topic Forum – Requirements – April 2013 Deliberate Requirements –Service, CCMD or Agency Driven –Traditional route for capabilities that require significant tech development and/or are not urgent or compelling in nature Emergent Requirements –CCMD Driven –Supports accelerated acquisition of capabilities needed for an anticipated or pending contingency operation –VCJCS verifies, JCB or JROC validates Urgent Requirements –CCMD Driven –Urgent and compelling to prevent loss of life and/or mission failure during current operations –Require little tech development and can be resolved in less than two years –DDR validates “Keep right, except to pass” DELIBERATEDELIBERATE EMERGENTEMERGENT URGENTURGENT 0 – 2 YRS 0+ to 5 YRS CONFLICT LANE ONLY POTENTIAL CONFLICT LANE 2-6+ YRS Three Requirements “Lanes” 35

Hot Topic Forum – Requirements – April 2013 Configuration Steering Boards: Who? The Acquisition Executive of each DoD Component will chair a Configuration Steering Board for ACAT I and ACAT IA programs Broad executive membership: –Senior representatives from the Office of the USD(AT&L) –The Assistant Secretary for Acquisition or his or her designee –The Joint Staff –Empowered representatives from the Service Chief of Staff and comptroller offices of the Military Department concerned –Representatives from other Military Departments where appropriate –The Military Deputy to the DoD CAE –The PEO –Other senior representatives from OSD and the DoD Component DoD Components should also form appropriate level and composition Configuration Steering Boards for lower ACAT programs. 36