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
cost related decisions have been
made
Little ability to influence
LCC90-95% of
cost related decisions have been
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
Hot Topic Forum – Requirements – April 2013
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
Hot Topic Forum – Requirements – April 2013 5
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
Hot Topic Forum – Requirements – April 2013 6
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
Hot Topic Forum – Requirements – April 2013 7
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
Hot Topic Forum – Requirements – April 2013 8
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)?
Hot Topic Forum – Requirements – April 2013 9
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”
Hot Topic Forum – Requirements – April 2013 10
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)
Hot Topic Forum – Requirements – April 2013 11
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.
Hot Topic Forum – Requirements – April 2013 12
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
Hot Topic Forum – Requirements – April 2013 13
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
Hot Topic Forum – Requirements – April 2013 14
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”
Hot Topic Forum – Requirements – April 2013 15
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
Hot Topic Forum – Requirements – April 2013 16
IOC
Technology Development
Engineering & Manufacturing 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
Hot Topic Forum – Requirements – April 2013 17
• 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 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
Hot Topic Forum – Requirements – April 2013 18
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
Hot Topic Forum – Requirements – April 2013 19
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
Hot Topic Forum – Requirements – April 2013 20
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?
Hot Topic Forum – Requirements – April 2013 21
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
Hot Topic Forum – Requirements – April 2013 22
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
Hot Topic Forum – Requirements – April 2013 23
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
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 35
• 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”
Hot Topic Forum – Requirements – April 2013 36
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.