Dr. Chuck Court Requirements Center Director Defense Systems Management College Fort Belvoir, VA...

Dr. Chuck Court

Requirements Center Director

Defense Systems Management College

Fort Belvoir, VA

The Requirements BehindBuilding Stronger

Partnerships to Control Costs

Hot Topic Forum – Requirements – April 2013 2

Requirements Problems and Solutions

• When do we have the best opportunities to affect program costs?

• Problems with Requirements – GAO Report 13-103

• 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

Hot Topic Forum – Requirements – April 2013

A IOCBMaterialSolutionAnalysis

Engineering & Manufacturing Development

Operations &Support

C

FRP Decision Review

FOC

TechnologyDevelopment

Post CDR AssessmentMDD

Production &Deployment

High ability to influence

LCC70-75% of

cost related decisions have been

made

Less ability to influence

LCC85% of


made

Little ability to influence

LCC90-95% of


made

Minimum ability to influence LCC 95% of cost related decisions

have been made

JCIDS Sponsor Materiel Developer

Initial Capabilities Document

Capability Development

Document

Capability Production Document

Ability to Influence Program Affordability

3

Pre-EMDReview


Life Cycle Cost (LCC)Determination

Pre-MSA

ActualFundsSpent

0

20

40

60

80

100

A B P&D O&S

Approximately90% of LCC

determined here

TD

EMD C

Control Costs Here:“Sweet Spot”

The Best Time to Control Costs

Affordability ReductionOpportunities

*Notional curves based on a

combined Kaminski, DAU, & AMR Research Inc. data…

Approximately10% of LCC Spent

Life Cycle Affordability Determination*

4


GAO Report 13-103: 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


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


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?

• Choose:– Have it cheap– Have it fast– Have it done right


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)?


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”


Big “A” Acquisition

Small “a” Acquisition

Big “A” Acquisition

Resources(PPBE)

DefenseAcquisition

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

Requirements(JCIDS)


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.


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

Build Stronger Partnerships


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


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”


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”

Establish the Need – Follow the Program


IOC

Technology Development


Production & Deployment

Operations & Support

FRP DecisionReview

FOC

Post-CDRAssessment

MaterielSolutionAnalysis

Materiel Development Decision

BA CProgramInitiation

The Defense acquisition System

Pre-EMDReview

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


• 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


Production & Deployment

CDD CPD

SECDEF

Select JointConcept

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 ofAlternatives (AoA)

CompetitivePrototyping

Joint Staff / Joint Requirements Oversight Council / OSD

Defense Acquisition: JCIDS and the DAS

•SSA Products•Integrated Security Constructs

•Joint Concepts

ICD

MaterielDevelopment

Decision

Sponsor-Approve

dCDD

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


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


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


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?


Certification Training Levels

CLR 101Introduction

to JCIDS

RQM 110Core Concepts for

Requirements Management

RQM 310Advanced

Concepts and Skills

RQM 403Requirements

Executive OverviewWorkshop

RQM 413Senior Leader Requirements

Course

4 - 6 hours 24 - 30 hours 4 ½ days 1 day Tailored

A, B, C B, C C D (1-3 Star / SES) D (4-Star / Agency Head)

Required Training Level GuidelinesA 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


Requirements Management Training Progression

RQM 110Core Concepts

for Requirements Management

RQM 310 Advanced

Concepts and Skills

CLR 151Analysis of Alternatives

CLR 250Capabilities-Based

Assessments

CLR 252Developing

Requirements

RQM 403Requirements

Executive Overview Workshop (REOW)

CLR 101Introduction to

JCIDS

Core Core Plus Executive Level

CLR 030Environment,

Safety and Occ. Health

Deployed

In revision

RQM 413Senior Leader Requirements

Overview


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

Backup Slides

25


Characteristics of a Good Requirement

• Measurable• Attainable• Necessary• Correct• Unambiguous• Orderly• Organized• Results-Oriented

26


Measurable

• Requirements need to be – Quantifiable– Verifiable

• How– Inspection– Analysis– Demonstration– Simulation– Testing

27



Attainable

• Must be:– Feasible– Achievable

• Build with today’s technology • Within available time• Within available money • Technology Readiness Levels

28



Necessary

• Is it necessary to accomplish the mission?

• What are the fiscal constraints?

• No room for– Nice to have– Desires– Frivolous

29



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



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



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



Organized

• Strategy to task• Trace thru ID to

Development to Verification• Group into categories

(missions / functions)• This cuts down on

– Duplication– Inconsistencies– Contradictions

33



Results-Oriented

• What does it have to DO?• Capability based• What are the needs?• Not how to accomplish

the mission

34



• 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”

DELIBERATE

EMERGENT

URGENT

0 – 2YRS

0+ to 5 YRS

CONFLICTLANEONLY

POTENTIALCONFLICT

LANE

2-6+YRS

Three Requirements “Lanes”


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.

Date post:	25-Dec-2015
Category:	Documents
Upload:	pearl-ryan
View:	215 times
Download:	1 times

Dr. Chuck Court Requirements Center Director Defense Systems Management College Fort Belvoir, VA...

Documents