1. The Defense Acquisition Management System 2009 Implementing DoDI 5000
May 6, 2009
John Gorrell
Deputy Director, Current Acquisition
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2. The Defense Acquisition Management System
DoDI (December 2008)
New Policy Directed by Congress
New or Revised Regulatory Policy
Statutory & Regulatory Information & Milestone Requirements
The Defense Acquisition Management System - Milestones, Phases and Key Activities
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3. Changes to Phases A C B IOC FOC Pre-Systems Acquisition
User Needs
Technology Opportunities & Resources A C B
IOC
FOC
Materiel
Solution
Analysis
Technology Development
Engineering and
Manufacturing Development
Production & Deployment
Operations &
Support
CDD
CPD
Materiel Development
Decision
Post PDR
Assessment
Post CDR
Assessment
FRP
Decision
Review
AoA
PDR
PDR
CDR
ICD or
Pre-Systems Acquisition
Systems Acquisition
Sustainment
Materiel Solution Analysis (MSA). Major change: AoA no longer “refines” materiel solution(s) identified in the ICD. ICD will no longer contain prioritized materiel solutions.
Technology Development. Major change: The TDS and associated funding must provide for two or more competing teams producing prototypes of the system and/or key system elements prior to, or through, Milestone B. PDR conducted for candidate designs and PDR report provided to MDA at Milestone B. Guided by the ICD, draft CDD, the TDS and systems engineering planning. (Note, does not mention draft CDD; however, revised 3170 will make this clear).
Engineering & Manufacturing Development. Major changes: Establishment of the product baseline for all configuration items prior to P-CDR Assessment. Requires that selected production-representative article be demonstrated in their intended environment and that manufacturing processes have been effectively demonstrated prior to MS C.
Names and some activities of two major efforts changed: covered later.
Old (2003)
New (2008)
Change from 2003
Concept Refinement (CR)
Materiel Solution Analysis
More robust AoA
Technology Development (TD)
Technology Development (TD)
Competitive prototyping
Systems Development & Demonstration (SDD)
Engineering & Manufacturing Development (EMD)
More robust system engineering
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4. Changes to Decision Points
User Needs
Technology Opportunities & Resources A C B
IOC
FOC
Materiel
Solution
Analysis
Technology Development
Engineering and
Manufacturing Development
Production & Deployment
Operations &
Support
ICD
CDD
CPD
Materiel Development
Decision
Post PDR
Assessment
Post CDR
Assessment
FRP
Decision
Review
AoA
PDR
PDR
CDR or
Sustainment
Pre-Systems Acquisition
MDD: the formal entry into the acquisition process; mandatory for all programs.
-At the MDD, the Joint Staff presents JROC recommendations; the Component presents the ICD with a preliminary CONOPS, description of capability needed, operational risks, and basis for why a non-materiel solution(s) will not fill the need (or completely fill the need).
--The MDA approves the guidance for conduct of the AoA (for ACAT I programs, OSD/PA&E provides); determines the phase of entry into the process; and designates the lead Component.
--The lead Component prepares the AoA study plan after approval of the study guidance at the MDD.
Post PDR Assessment: Required only if PDR comes after Milestone B. More on PDRs later.
Post CDR Assessment:
-MDA conducts based on a post-CDR report from the PM.
-Post CDR Report provides assessment of design maturity, a summary of the issues and actions PM intends to take to resolve the issues, assessment of risk of meeting exit criteria for EMDD phase, potential issues that could result in an APB breach.
-MDA reviews the PM’s report and decides if program is ready/not ready to proceed in EMD and issue an ADM.
Systems Acquisition
Old (2003)
New (2008)
Change from 2003
Concept Decision (CD)
Materiel Development Decision (MDD)
MDD required prior to entering the process at any point
N/A
Post-PDR Assessment
MDA’s assessment of PM’s PDR Report (if PDR after MS B)
Design Readiness Review DRR
Post-CDR Assessment
MDA’s assessment of PM’s CDR Report
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5. Evolutionary Acquisition
From two processes…
To one process…
Incremental Development: End-state is known; requirements met over time in several increments
Spiral Development: End-state is not known; requirements for increments dependent upon technology maturation and user feedback.
Capability delivered in increments, recognizing up front need for future capability improvements
Each increment:
depends on mature technology
is a militarily useful and supportable operational capability
Successive Technology Development Phases may be needed to mature technology for multiple increments
No spirals!
-EA now just one process as shown. No “spirals”. Term spiral development no longer used as an EA strategy term.
“Spirals” are out. “Spiral Development” is an engineering term that will continue to be used for software development. However, using it as a “strategy” term caused problems
“Increments” are in.
-Each increment is a militarily-useful and supportable operational capability that can be developed, produced, deployed, and sustained.
-Each increment will have its own set of threshold and objective values set by the user.
-Block upgrades, pre-planned product improvement, and similar efforts that provide a significant increase in operational capability and meet an acquisition category threshold specified in this document shall be managed as separate increments. .
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6. Prototyping and Competition
“The TDS and associated funding shall provide for two or more competing teams producing prototypes of the system and/or key system elements prior to, or through, Milestone B. Prototype systems or appropriate component-level prototyping shall be employed to reduce technical risk, validate designs and cost estimates, evaluate manufacturing processes, and refine requirements ”
IOC B A
FOC
CDD
CPD
ICD
Materiel
Solution
Analysis
Technology Development
Production & Deployment
Operations &
Support
Engineering and
Manufacturing Development
FRP
Decision
Review
Materiel Development
Post CDR
Assessment
Post PDR
PDR
CDR
AoA
Pre-Systems Acquisition
Systems Acquisition
Sustainment C or
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7. Material Development Decision
John Gorrell
Deputy Director, Current Acquisition
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8. The Defense Acquisition Management System 2008
Technology Opportunities & Resources
User Needs A B C
Operations & Support
Strategic Guidance
Joint Concepts
Capabilities - Based Assessment
ICD
Materiel
Solution
Analysis
Technology
Development
CDD
MDD
Engineering & Manuf
Development
CPD
Production & Deployment
O&S
FCB
Incremental Development
OSD/JCS
COCOM
Acquisition Process
For some, this chart better illustrates that programs may enter the process at points further to the right than the MSA phase. The change from 2003 is that now an MDD is required to determine what the appropriate entry point will be.
This chart also shows the JCIDS process at the front end. The policy for JCIDS is under revision, with a revised CJCSI G due out soon.
CJCSM C will be cancelled and replaced with a “manual” posted on the J8 website on the SIPRNET. Non-SIPRNET access is not known at this time.
MDD is Formal Entry into Defense Acquisition Management System
MDD Required Regardless of DAMS Entry Point
“Following the Materiel Development Decision (MDD), the MDA may authorize entry into the acquisition management system at any point consistent with phase-specific entrance criteria and statutory requirements.”
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9. Challenges Transitions from Tech Base to Acquisition Program Funding
6.2/6.3 transitions to 6.3/6.4
Requirements Maturation
From MDD to Material Solution Analysis through Technology Development Phase
Contracting
Dual Prototyping
Limits to Recompete in Later Phases
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10. So What? Implications to Industry
DUAL PROTOTYPE – Technology Development Phase
Early Technology Commitment in the Technology Development Phase
Early Industry Resource Commitments to Compete in Technology Development Phase
Industry Must Understand Requirements Early to Get in Front of the Government Process
Shifts more Risk to Industry
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11. Backup Slides
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12. Material Development Decision (MDD)
JRO – Presents the ICD
Preliminary concept of operations
Description of needed capability
Operational risk(s)
Basis for determining the a “non-material” approach will not sufficiently mitigate the capability gap
PAIO – Proposes Study Guidance for the AoA
MDA – Approve the AoA Study guidance
Determines the acquisition phase of entry
Identifies the Milestone Reviews
Designates the Lead DoD Component or Principal Staff Assistant
Documents the decision(s) by ADM
The AoA is not performed by the PM
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13. Post MDD Material Solution Analysis Phase
Lead DoD Component
Proposes an AoA Study Plan
AoA assesses the preliminary material solutions
Identifies key technologies
Prepares and estimate of Life Cycle Costs
Study Plan coordinated with the MDA; approved by the PAIO prior to start of the AoA
Final AoA to be provided 60 days in advance of the Milestone Review
PAIO (in this case) evaluates the AoA and provides assessment to the Lead Component/Principal Staff and to the MDA
Illuminates capability advantages/disadvantages
Considers joint operational plans
Examination of sufficient feasible alternatives
Discuss key assumptions, variability and sensitivity to changes in calculated costs, technology risk maturity (TRL), training
Material Solution Analysis Phase Ends When the AoA is Completed
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14. Milestone Review (MS) JPM develops for presentation at MS A
Strategy for executing MS A to MS B to include Dual (or more) Prototyping
Technology Development Strategy (draft approved as part of MS review)
Systems Engineering Plan (Compare/contrast FDA fulfilled requirements to programmatic)
Test and Evaluation Strategy
Lifecycle concept
Tech Development Test Plan
T & E Resourcing Strategy
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15. Technology Development Phase
“Entrance into this phase depends on the completion of the AoA, a proposed materiel solution, and full funding for planned Technology Development Phase activity. At Milestone A, the MDA shall review the proposed materiel solution and the draft Technology Development Strategy (TDS). The Technology Development Phase begins when the MDA has approved a materiel solution and the TDS, and has documented the decision in an ADM. Technology development for an MDAP shall not proceed without Milestone A approval. For business area capabilities, commercially available solutions shall be preferred. A favorable Milestone A decision DOES NOT mean that a new acquisition program has been initiated.”
IOC B A
FOC
CDD
CPD
ICD
Materiel
Solution
Analysis
Technology Development
Production & Deployment
Operations &
Support
Engineering and
Manufacturing Development
FRP
Decision
Review
Materiel Development
Post CDR
Assessment
Post PDR
PDR
CDR
AoA
Pre-Systems Acquisition
Systems Acquisition
Sustainment C or
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16. PDR & CDR
Milestone A
Milestone B
FOC
Sustain
Stockpile
IOC
Milestone C LRIP
(Low Rate Initial Production )
Full Rate Production IPR
(Initial Program Review)
(Initial Operating Capability)
Transitions to Advanced Development (Medical)
Transitions to Advanced Development (Non-Medical)
DoD 5000 Documentation
ICD
TDS
SEP
AoA
CDD
SAMP
APB
etc.
CPD
DoD
Materiel Solution Analysis
Technology Development
Engineering and Manufacturing Development
Production & Deployment
Operations & Support
Pre-Clinical / Clinical Development
Clinical Development
Regulatory Submission
Post Licensure
Research / Discovery
Proof of concept animal studies
Dose range, schedule & safety in animals
Phase 1 Human Trials (safety)
Animal Efficacy Trials
Phase 2 Human Trials (safety/dose/schedule)
BLA / NDA Submission
Pivotal animal efficacy studies
Phase 3 Human trials (expanded safety)
Licensure
FDA Review
Initial assay development
Clinical assay development
Post marketing surveillance
Biologic License Agreement / New Drug Application
(Investigational New Drug)
Indication(s) for use
Route(s) of administration
Manufacturing process (initial)
Lab scale production
Process development & pilot lot production
Manufacturing scale up
Validation & Demo Lots
Consistency Lots
Warm Base Manufacturing
IND Submission - Product Commitment
Emergency Use Authorization may be considered
FDA
PDR
CDR
PDR after initial successful human trials (Phase I Safety)
The flexibility of the DoD 5000 Acquisition Program facilitates integration of DoD Acquisition and FDA regulatory requirements.
All medical products must be FDA approved. Key performance parameter is licensure. KPPs must be done in order for our programs to proceed to the procurement phase.
DoD has an acquisition system that requires a system-engineering like framework for each program. There are specific documentation and review required whether you are building a plane or a vaccine.
The medical product development approach is tailored to integrate the much more rigid FDA process
CDR after Validation & Demo lots produced successfully
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17. Comparison 2003 vs. 2008 Focus of major changes
User Needs &
Technology Opportunities
Defense Acquisition Management
Framework- 2003 A B
Program
Initiation C
IOC
FOC
Concept
Refinement
Technology
Development
System Development
& Demonstration
Production &
Deployment
Operations &
Support
Design
Readiness
Review
FRP
Decision
Review
Concept
Decision
User Needs
Defense Acquisition Management System
The major differences between the 2003 and 2008 versions of the DoDI are:
-The Materiel Development Decision (MDD) replaces the Concept Decision (CD). A MDD is required regardless of where the program intends to enter the acquisition process.
NOTE: The arrows from User Needs/Technology Opportunities now point to the MDD at the extreme left: THIS DOES NOT MEAN THAT EVERY PROGRAM MUST ENTER AT THE MATERIEL SOLUTION ANALYSIS PHASE. This is illustrated better on chart 5.
-The Materiel Solution Analysis Phase (MSA) replaces the Concept Refinement (CR) Phase. MSA is not “refinement” of the preferred solution(s) identified in the ICD. The JCIDS process no longer includes an Analysis of Materiel and Non-Materiel Alternatives. Non-materiel solutions will be handled IAW JCIDS; however, all analysis of alternative materiel solutions will be accomplished by the AoA during MSA. The MDA will approve the materiel solution at Milestone A.
-Technology Development: This phase now includes a mandatory requirement for competitive prototyping of the system or key-system elements. A Preliminary Design Review (PDR) may be conducted for the candidate designs, and a PDR report will be provided to the MDA with recommended requirements trades. (The final CDD should contain trade-offs determined during the TD phase).
-Engineering & Manufacturing Development (EMD) replaces System Development and Demonstration (SDD). There is more emphasis on systems engineering and technical reviews. The two major efforts have been renamed. The PM must provide a PDR report, and must provide a Critical Design Review (CDR) report to the MDA (more on this later). A Post-CDR Assessment replaces the Design Readiness Review. The MDA will determine if the results of the CDR warrant continuing EMD to Milestone C.
SE is much more robust throughout all phases, with mandatory technical reviews.
Technology Opportunities & Resources A B
Program Initiation C
IOC
FOC
Materiel Solution Analysis
Technology Development
Engineering and
Manufacturing Development
Production & Deployment
Operations &
Support
Materiel Development Decision
Post PDR
Assessment
Post-CDR
Assessment
FRP Decision
Review
PDR
PDR or
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