Defense Systems Management CollegeDefense Acquisition UniversityFort Belvoir, Virginia
DoD Requirements Overview
2
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
3
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
4
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)
5
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
6
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
7
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
8
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
9
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
10
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)
11
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
12
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
13
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)
14
Capability Solution Documents
15
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
17
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…
18
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)
22
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)
23
Who Initiates an Urgent/Emergent Need?
24
Urgent/Emergent Staffing
25
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
26
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
27
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
28
Differences Between the CDD and the CPD