Defense Systems Management CollegeDefense Acquisition UniversityFort Belvoir, Virginia

DoD Requirements Overview

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Why do we have the JROC and JCIDS?• One reason: acquisition of materiel capabilities for the warfighter

• But supporting acquisition is only part of the picture… More than any other body, the JROC is charged with shaping the force

JCIDS

DAS

PPBE

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JROC/JCIDS: Law and Policy

• Title 10 Responsibilities Section 181 (as modified by 2009 Weapon System Acquisition Reform Act, 2011, 2013, and 2016 National Defense Authorization Acts)

– The Joint Requirements Oversight Council (JROC) shall assist the CJCS…• In identifying, assessing and approving military requirements to meet the National Military Strategy.• In identifying the core mission area associated with each requirement.• Ensuring the consideration of tradeoffs among life cycle cost, schedule, performance, and procurement

quantity in consultation with advisors• In establishing and assigning priority levels for joint military requirements• In reviewing the estimated total cost of such resources required in the fulfillment of each joint military

requirement and ensuring it is consistent with level of priority

– The JROC must…• Consider input from Combatant Commanders on joint requirements• Seek, and strongly consider, the views of the Chiefs of Staff of the armed forces, in their roles as customers

of the acquisition system, on matters pertaining to trade-offs among cost, schedule, technical feasibility, and performance

• Consider life cycle cost, schedule, performance, and procurement quantify tradeoffs in establishing requirements

• Set an Initial Operational Capability (IOC) schedule objective for each requirement

• All the above further emphasized in the JROC Charter (CJCSI 5123.01 series) and JCIDS Instruction (CJCSI 3170.01 series) and detailed in the JCIDS Manual

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JCIDS Changes Since 2012

• Limit the JROC audience so determinative discussion/decisions can be made– More Tank-like: minimal others by invitation only; Principals+1– Statutory Advisors or their Deputy (AT&L, CAPE, OT&E, OSD(P), OSD(C))

• KPPs – Six “mandatory” (Force protection, survivability, sustainment, net-ready (major changes), training, and energy); if not used, must justify why not

• Cost vs. Capability vs. Risk – better upfront analysis– Review of Analysis of Alternatives (AoA) prior to Milestone A – FCB strengthened – FCB Chair/Lead briefs JROC; FCB reviews AoA results– Highlight non-materiel approaches in conjunction with materiel –JS J7– Tee up the appropriate debate

• Tougher decisions on the 80% solution (i.e. knee in the curve)• More portfolio analysis to determine risk• Include Special Access Programs in the portfolio review

– Tripwires – cost growth, and for IOC or FOC slips, and for quantity reductions• Solution centric vice document/process centric – faster timelines

– Three lanes – deliberate, emergent, urgent – JCIDS documents – ICD, CDD, CPD, DCR page count restricted (10, 45, 40, 30)

Finding the balance between:

CCMD near-term requirements to support CONPLANs and

current missionsand

Services’ long range vision & investment plans

Versatile, joint systems andSystems optimized for service

missions

Growing demands and Fiscal & political constraints

Geographic specificity and Worldwide applicability

Ambitious requirements and Achievable acquisition strategy

Quantity matters and Quality (High-end capabilities)

COST and PERFORMANCE(acceptable risk)

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Requirements Tradeoffs

JCB

JROCJROC

FCB WGs

FCBs

JROC DECISION CHAIN

JROC: Joint Requirements Oversight CouncilJCB: Joint Capability BoardFCBs: Functional Capability Boards (Force Support, Battlespace Awareness, Force Application, Logistics, Protection, C4/Cyber.)FCB WGs: FCB Working Groups

JROC MEMBERSHIP

Chair: VCJCS. Advises the CJCS

Statutory Council Members:

• Vice Chief of Staff, Army

• Vice Chief of Naval Operations

• Vice Chief of Staff, Air Force

• Assistant Commandant of the Marine Corps

• Combatant Commands* (Commander or Deputy Commander)

*Unless otherwise directed to participate by the JROC Chairman, CCMD representatives are highly encouraged to participate as voting members of the JROC when matters related to the area of responsibility or functions of that command will be under consideration by the JROC. USD(AT&L), Dir, CAPE, USD(Comptroller), DOT&E, and USD(Policy) attend as statutory JROC advisors

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JCIDS Requirements Decision Chain

Owns JCIDS; Validates JROC Interest documents; final authority

Validates JCB Interest documents; assists JROC

Reviews documents & prioritizes prior to FCB review

Reviews documents; prioritizes within portfolio; makes validation recommendation to JCB/JROC

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Functional Capability Boards & Sponsoring Organizations

C4 / Cyber Logistics*Battlespace Awareness

Force Application

Brig Gen MurphyJS J6

Mr. CanfieldJS J2

Mr. HawkinsJS J4

MajGen ClardyJS J8

Force Support(includes BP)

Protection**

COL Hoggard (acting)JS J8

DOD CIO OSD (C)D, CAPE OSD (P)DIA Rep (Threat)ODNI/IRB Other DoD Agencies as necessary

FCB Membership: (O-6 level)ServicesCombatant Command RepsOSD (AT&L)OSD (I)USecAF (Space)

MajGenClardyJS J8

*DASD for Supply Chain Integration, Ms. Reardon, serves as Log FCB co-chair.**J8/DDJIAMDO, RDML Cashman, serves as Protection FCB co-chair for IAMD issues.

Additional JCA:• Corporate Management and

Support• No FCB, but partly covered

by OSD/DCMO

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JCIDS Deliberate Touch Points

Initial Capabilities Document (ICD): Specifies capability requirements and associated capability gaps which represent unacceptable operational risk. Recommends mitigating identified capability gap(s) with a non-materiel capability solution, materiel capability solution, or some combination. A validated ICD is an entrance criterion necessary for each MDD.

Joint Doctrine, Organization, Training, material, Leadership and Education, Personnel, Facilities, and Policy (DOTmLPF-P) Change Recommendation (DCR): Recommends mitigating identified capability gaps with non-materiel capability solutions, through changes to one or more of the eight DOTmLPF-P areas. When a DCR is not generated from a previously validated ICD, it specifies the capability requirements and associated capability gaps for review and validation.

Capability Development Document (CDD): Specifies capability requirements, in terms of developmental KPPs, KSAs, and APAs, and other related information necessary to support development of one or more increments of a materiel capability solution. A draft CDD is a requirement for the RFP release in support of the TMRR phase, and a validated CDD is a requirement for the development RFP release decision point and informs the MS B acquisition decision point.

Capability Production Document (CPD): Specifies capability requirements, in terms of production KPPs, KSAs, and APAs, and other related information necessary to support production of a single increment of a materiel capability solution. A validated CPD is a requirement for the MS C decision point.

JCIDS Touch Points

Program Updates

DCR

• Joint DCR – DOTmLPF-P Change Recommendation– When Sponsor proposes that a Joint Non-Materiel

Solution is appropriate– Non-Materiel Solutions

• Change doctrine• Reorganize• Train DOD personnel differently• Acquire commercial or non-developmental items, or additional

quantities of existing items• Adjust the professional development of the joint leader • Add or reassign personnel• Move or realign facilities• Change policy

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Capability Requirement Documents

• Initial Capabilities Document (ICD) (MS A)– Documents Capability Requirements, and

associated Capability Gaps, based upon Capabilities-Based Assessment (CBA) Results

– Identifies relevant attributes and required operational effectiveness (MoEs - mission/task based – system agnostic)

– Documents the recommendation(s) for a path forward to close or mitigate one or more capability gaps

– Predecessor for executing the Analysis of Alternatives and then drafting the Capabilities Development Document

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Capability Requirement Documents

• Capability Development Document (MS B)– Defines performance parameters for a specific

capability solution intended to satisfy validated capability requirements

• Identifies quantified KPPs, KSAs, and APAs (MoPs)• Attributes should be Authoritative, Measurable, and

Testable

– Describes DOTmLPF-P constraints or enablers associated with the solution

– May describe multiple increments of a capability solution

– Provides key inputs to the acquisition strategy and the Acquisition Program Baseline (APB)

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Capability Solution Documents

• Performance Attributes of a System• Critical To Develop an Effective Military Capability • KPPs Must be Measurable, Testable, and

Quantifiable in a Practical and Timely Manner– Enable feedback from T&E; support decision making

• Mandatory KPPs– Force Protection, System Survivability, Sustainment, Net

Ready, Training, Energy

• Validated by the JROC for JROC Interest Documents• Failure to Meet a KPP Results in Reevaluation or

Reassessment of the Program

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Key Performance Parameters (KPPs)

• Attributes or Characteristics Considered Essential to Achieving a Balanced Solution

• Not Critical Enough to be Selected as a KPP• Also Measurable, Testable, and Quantifiable• Identified by the Sponsor; Should be Kept to

a Minimum• Sponsor Senior Leadership can Change a

KSA

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Key System Attributes (KSAs)

• Capability Production Document (CPD) (MS C)– Supports Production and Development of one increment

• Refines CDD KPPs, KSAs, and APAs as needed. (MoPs)• Provides Authoritative, Measurable, Testable parameters

– Support Production, Testing, and Deployment • May describe Incremental Production and Deployment

– Generally, No New Requirements– Must meet validated operational Capability Requirements

from the ICD (MoEs)

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Capability Solution Documents

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JCIDS Document Tracks

JROCJROCJROC Interest

Joint Integration

Joint Information

JCB Interest

KM/DS staffing & comment

FCB review & prioritization

KM/DS staffing & comment

FCB review & prioritization

KM/DS staffing & comment

FCB review & prioritization

KM/DS staffing & comment

FCB review & prioritization

JCBReview

ValidationAuthority

ValidationAuthority

JCBJCB

SponsorSponsor

Joint Staffing Designator

(JSD)

ACAT I/IA programs & Joint DCRs

ACAT II & below with impact on interoperability

ACAT II & below that require endorsements & certifications

ACAT II & below that do not require endorsements & certifications

KM/DS: Knowledge Management/Decision Support tool

• Urgent Threat: 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. The J8 Deputy Director for Requirements (DDR) validates

• Emergent Threat: CCMD Driven. Supports accelerated acquisition of capabilities needed for an anticipated or pending contingency operation. VCJCS verifies, JCB or JROC validates

• Deliberate Planning: Service, CCMD or Agency Driven. Traditional route for capabilities that require significant tech development and/or are not urgent or compelling in nature.

2-yr efforts

Process Lanes

• Materiel Solutions– Initial Capabilities Document (ICD)– Capability Development Document (CDD)– Capability Production Document (CPD)

• Non-Materiel Solutions – Joint DOTmLPF-P Change Recommendation (DCR)

• Operational Requirements Development is a Team Effort; All Stakeholders Should be Involved; Involve the User in Technical Requirements Development

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Summary of the Deliberate JCIDS Process

Take the Lead in Shaping the Force – Back to JROC and CJCS Title 10– Debate the difficult issues and make difficult choices earlier

– Better upfront fidelity on cost/schedule/performance tradeoffs

– More analytic rigor and risk/portfolio analysis

– Stronger emphasis on prioritizing capability requirements

– Better end-to-end traceability to facilitate decision making: Missions – Requirements – Acquisition and DOTmLPF-P – Budget.

– More dynamic/iterative process throughout a program’s lifecycle. (Revisit as necessary…strategy shifts, threat changes, etc.)

Make the difficult choices throughout the requirements continuum…

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Desired End-State

• LRIP• FOT&E

•Technology Demonstrated

•Initial Key Performance Parameters/ Key System Attributes (KPPs/KSAs)

•Acquisition Strategy (AS)

•TEMP•SEP•LCSP•OMS/MP

•Final Design•Developmental T&E (DT&E)

•Operational Assessments (OA)

•Revise KPPs/ KSAs

•AS•Acquisition Pgm Baseline (APB)

•TEMP•SEP•LCSP•OMS/MP

MS C

Develop, Test, Produce & Field

MS A

Develop, test, LRIP & Full Rate Production, deploy to warfighter, IOC

SECDEF

Activity

Policy Identify Capability Requirements Select Materiel Solution

•Low Rate Initial Production (LRIP)

•Initial Operational T&E (IOT&E)

•Full-Rate Prod (FRP)

•AS•APB•TEMP•SEP•LCSP•OMS/MP

Military Services

OSD/Joint Staff

•Analysis of Alternatives (AoA)

•Acquisition Strategy •Test & Evaluation (T&E) Master Plan (TEMP)

•System Engineering Plan (SEP)

•Life Cycle Sustainment Plan (LCSP)

•Operational Mode Summary/Mission Profile (OMS/MP)

OSD (AT&L, CAPE), Services and OSD (DOT&E) -- Joint Staff (JROC)

Analysis ofAlternatives (AoA)

CompetitivePrototyping

Joint Staff / Joint Requirements Oversight Council / OSD

Getting The Front End Right is Key19

JCIDS and Acquisition(Interim DoDI 5000.02, Nov 2013)

•Integrated Security Constructs

•Joint Concepts

MaterielDevelopment

Decision

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)

MS B

CDDVal

RFPRel

Materiel Solution Analysis

Technology Maturation &

Risk Reduction

Engineering & Manufacturing Development

Production & Deployment

CDD CPDSelect JointConcept

Capabilities-Based Assessment /Other

Develop CONOPS

ICDDraftCDD

FRP

BACKUPS

• Every Service has a Rapid Response Procedure• The Joint Rapid Response Lanes are the Joint

Urgent Operational Needs (JUON) and Joint Emergent Operational Needs (JEON)

• JUON/JEON Validation and Resourcing Involves – VCJCS/JCB/JROC– The Gatekeeper (J8 Deputy Director for Requirements

(DDR))– The Joint Rapid Acquisition Cell (JRAC)– Functional Capabilities Boards (FCBs) and Working Groups– The Military Services, Defense Agencies, ISR TF and

Joint Improvised Explosive Device Defeat Organization (JIEDDO)

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Joint Urgent & Emergent Operational Needs

• An Urgent/Emergent Request Must Come from:– A Joint Force Commander– A Service Component Commander – A commander’s delegated representative

• Services Validate Service-Unique Urgent/Emergent Need

• JUONs/JEONs are Endorsed by the Combatant Commanders and Validated by the Joint Staff/DDR (for JUONs) and JCB/JROC (for JEONs)

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Who Initiates an Urgent/Emergent Need?

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Urgent/Emergent Staffing

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Challenge of Rapid AcquisitionAA

Future FocusedVery Structured ProcessEvolved RequirementsAnalysis of AlternativesLengthy DevelopmentHigh Visibility on ProgramLarge Investment

Deliberate

aa

immediate 

Now-focused More ad hoc process Broad requirement Quick assessment of

alternatives Limited development High visibility on results Limited investment Very Limited Feedback Transition to PoR

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JUON / JEON Process Flow From Generation to Delivery to Assessment

Warfighter

Originates

Joint Rapid Acquisition Cell (JRAC)

• Determines Resourcing Strategy• Assigns to JIEDDO or

Service/Agency for sponsorship

Services/Agencies

Non C-IED Solutions

Joint IED Defeat Office

C-IED Solutions

FCB

Triages

JS J-8/JCD

Receives

JS J-8 DDR or JCB/JROC

Validates

Warfighter - Senior Integration Group (SIG): Oversight Body for DoD

Urgent Needs

Solution Delivery

CCMD CoS

Certifies

Assessment ofOperational Utility

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Rapid Response FrameworkThe JUON / JEON Process Consists of Four Phases:

GENERATIONPHASE

VETTINGPHASE

EQUIPPINGPHASE

OPERATIONS AND SUPPORT PHASE

Force Commander Identifies Urgent /Emergent Need

CCMD Staff determines themost suitable process

CCMD CoS certifies and submitsto Joint Staff (J-8 JCD)

J-8 JCD Receives and verifies that JUON / JEON meets submission criteria

Joint staff reviews and validatesJUON or JEON

Identify solutions

JRAC determines a resourcing Strategy and assigns Sponsor

Sponsor creates a Simplified Acquisition Plan

Procures and delivers solutionto the Warfighter

Provide Progress Reports On Performance, Cost, and Schedule

Sponsor sustains solutionand monitors performance fortwenty- four months

Sponsor, CCMD, andFCB prepare Capability Review to address final disposition of fieldedsystem

SPEED IS LIFE

CDD CPD

Focus on Design Focus on Production

All Increments A Specific Increment

KPPs to Help Evaluate Alternative Designs

KPPs Refined and Tailored to the Proposed System

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Differences Between the CDD and the CPD