1. Materiel Development Decision (MDD) to Milestone A Requirements Management Activities
March 7, 2017

2. Lesson Objective
Determine the key requirements management activities and the role of the ICD in support of the Materiel Development Decision (MDD), during the Materiel Solution Analysis (MSA) phase, and Milestone A.
Explain the inputs to the MDD
Explain the outputs from MDD -- decisions and approvals
Summarize the purpose, major activities, and links that take place during the MSA phase
Explain Milestone A decisions and approvals

3. Materiel Development Decision (MDD)
The MDD is mandatory for ALL programs, regardless of Acquisition Category (ACAT)
Development RFP Release
CDD Validation
FRP/FD A B C
MDD
ICD
Draft
CDD
CDD
CPD
Strategic Guidance
Joint Concepts
Capabilities - Based Assessment
Materiel
Solution Analysis
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support
Technology Maturation & Risk Reduction
Sustainment
Disposal
President
SECDEF
CJCS
Joint
Community
JCIDS
DAS
CDD: Capability Development Document
CPD: Capability Production Document
FRP/FD: Full-Rate Production/Full Deployment
ICD: Initial Capabilities Document
MDD: Materiel Development Decision
RFP: Request for Proposal

4. JCIDS & Acquisition Military Services 4
President, SECDEF & Chairman:
Identification of Capability Requirements
AoA AS
TEMP
SEP
OMS/MP
Technology
Demonstrated
Initial KPPs,
KSAs, APAs AS
TEMP
SEP
LCSP
OMS/MP
Final Design
Developmental T&E (DT&E)
Operational Assessments (OA)
Revise KPPs, KSAs, APAs AS
APB
TEMP
SEP
LCSP
OMS/MP
LRIP
IOT&E
FRP AS
APB
TEMP
SEP
LCSP
OMS/MP
Strategic Guidance
Operational Planning
CBAs & Other Studies
Exercises/Lessons
Learned
JCTDs/JUON/JEON
Defense Business
OSD/Joint Staff
Integrated Security Constructs
Joint Concepts
Component Approved
CDD Validation
RFP Release
ICD
Draft
CDD A
CDD B
CPD C
MDD
Materiel
Solution Analysis
Strategic Guidance
Joint Concepts
Capabilities - Based Assessment
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support
President
SECDEF
CJCS
Joint
Community
AoA
Report
Sustainment
Disposal
PDR & PDR Assessment
CDR & CDR Assessment
Military Services
Validates ICD
Reviews AoA Results
Validates CDD
Validates CPD
JROC action for JROC Interest programs (ACAT I & IA)
SECDEF
Joint Staff / Joint Requirements Oversight Council / OSD
OSD (AT&L, CAPE), Services and OSD (DOT&E) Joint Staff (JROC)
Policy
Identify Capability
Requirements
Select Materiel
Solution
Develop, Test, Produce &
Field 4

5. Technology Maturation & Risk Reduction Production & Deployment
Acquisition
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support A
MDD B C
Materiel
Solution Analysis
AoA
Report
ICD
Draft
CDD
CPD 5

6. Technology Maturation & Risk Reduction Production & Deployment
Acquisition
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support A
MDD B C
Materiel
Solution Analysis
AoA
Report
ICD
Draft
CDD
CPD 6

7. Technology Maturation & Risk Reduction Production & Deployment
JCIDS Document Flow
Initial Capabilities
Document (ICD)
Identifies needed operational capabilities, capability gaps, & recommendations for materiel solutions
Informs an AoA of possible material solutions
Sets the acquisition stage
10 page limit…
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support A
MDD B C
Materiel
Solution Analysis
AoA
Report
ICD
Draft
CDD
CPD 7

8. JCIDS Document Flow 8 Capability Development Document (CDD)
Draft (Component-Approved) CDD at or before MS A
Validated CDD for Requirements Decision Point prior to MS B
Identifies KPPs, KSAs, & APAs
Attributes should be Authoritative, Measureable, & Testable
Describes DOTmLPF-P constraints associated with the solution
Could describe multiple increments
Supports AS & APB
Insert all CDD KPPs and if appropriate, Sustainment
KSAs verbatim into the APB
45 page limit…
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support A
MDD B C
Materiel
Solution Analysis
AoA
Report
ICD
Draft
CDD
CPD 8

9. JCIDS Document Flow 9 Capability Production Document (CPD)
Supports one increment
Production, Development Testing, and Deployment
Documents authoritative & testable capabilities
No new operational or technical requirements!
Must meet operational performance attributes
40 page limit…
Technology Maturation & Risk Reduction
Engineering &
Manufacturing
Development
Production & Deployment
Operations & Support A
MDD B C
Materiel
Solution Analysis
AoA
Report
ICD
Draft
CDD
CPD 9

10. Refresher: Capabilities-to-Requirements Traceability
The “What”
High-level
capabilities
Validated prior to start of system development
Developed & documented by the Requirements Sponsor IAW JCIDS
System
Key Performance
Parameters, Key
System Attributes, &
other system attributes
(e.g. range, survivability)
Subsystem
Technical Requirements
(e.g. airframe weight, fuel capacity)
The “How”
Developed through systems engineering
Developed by program office engineers
(…along with industry…)
Component
Specifications
(e.g. types of materials used in airframe, crew station layout, size and configuration of fuel tank)
Low-level
requirements

11. Pre-MDD Activities CBA or other study:
Results in a validated ICD recommending a materiel solution approach.
Approved Analysis of Alternatives (AoA) Study Guidance & AoA Study Plan.
Conduct a Market Survey to inform the AoA on potential commercial-off-the-shelf (COTS) and non-developmental item (NDI) solutions.
Best Practice: Department HQ, J-8, and requirements sponsor works with Milestone Decision Authority’s (MDA) staff to ensure information is available to help the MDA make an informed decision on where to enter the acquisition process
Determines next milestone and phase.
For ACAT I and IA programs, the Office of the Secretary of Defense (OSD), Director, Cost Assessment and Program Evaluation (CAPE) must approve the AoA Study Guidance and Plan. For other ACATs, Component policy applies.

12. MDD Inputs and Outputs Inputs: Outputs: Validated ICD
Validated On-line Life-Cycle Threat (VOLT – may see “STAR”) report (required for ACAT I & IA, may be waived by MDA for others)
Approved AoA Study Guidance and Study Plan
Market Survey results
Any Component analysis supporting preliminary conclusions to narrow range of alternatives
Plan to staff and fund actions leading to next decision point (usually Milestone A)
Tentative affordability, cost & inventory goals to scope AoA
Outputs:
Entry into the acquisition process
MDA’s Acquisition Decision Memorandum (ADM):
Designates lead DoD Component
Determines acquisition phase entry
Directs conduct of an AoA
Identifies initial review milestone
AoA Study Guidance and Study Plan (attached)

13. Materiel Solution Analysis Phase
MSA phase may include industry concept definition studies & initial solutions to inform the AoA
Purpose: Conduct analysis and other activities to support a Milestone A decision
Appoint PM; establish program office
Conduct AoA
Prepare RFP for TMRR Phase: Acquisition Strategy (AS), Systems Engineering Plan (SEP), Test & Evaluation Master Plan (TEMP), Life Cycle Sustainment Plan (LCSP) and other milestone documents
Activities: Requirements Management
Assess AoA results for preferred solution(s) to meet the ICD; Support AoA briefing for FCB
Translate ICD operational attributes into performance attributes (KPP/KSA/APA)
Develop DRAFT CDD and Operational Mode Summary/Mission Profile (OMS/MP)
Update CONOPS
Support PM with writing the AS, TEMP, SEP, LCSP and other milestone documents
Support initial estimates for Affordability Goals (constraints) and Life Cycle Cost
The Program Manager will review the information requirements for the upcoming decision event and may submit a request for waiver to statutory (when authorized by statute) and regulatory requirements to the to the cognizant approval authority (e.g., MDA, DoD CIO, DOT&E, DCAPE, JROC).” Congress must be notified – see table 6 requirement for congressional notification, page 75, DODI

14. Milestone Documents and the RM
Milestone Documents the RM is responsible for, and must be coordinated with the program management office (PMO):
ICD, draft CDD, CDD and CPD
Concept of Operations (CONOPS)
Operational Mode Summary/Mission Profile (OMS/MP)
Milestone Documents the PMO should provide to & coordinate with the RM:
Acquisition Strategy (Market Research results at Milestone A)
Acquisition Program Baseline (APB)
Cybersecurity Strategy
Reliability, Availability and Maintainability Cost Rationale (RAM-C) Report
Test and Evaluation Master Plan (TEMP)
Life Cycle Sustainment Plan (LCSP)
Validated On-Line Life-cycle Threat (VOLT) Report
Technology Readiness Assessment (TRA) results (Milestone B – CDD entry); Manufacturing Readiness Assessment (MRA) results (Milestone C – CPD entry)
Cost Documents: PMO Life Cycle Cost Estimate, Component Cost Estimate (CCE), Should-Cost Estimates. MDAPs and MAIS: Component Cost Position (CCP), and Independent Cost Estimate (ICE); Affordability Analysis: Initial goals to inform the AoA: MDD; Production and Sustainment Goals: Milestone A; Production and Sustainment Caps: Milestones B and C.
Other: AoA Report; Acquisition Decision Memos (ADMs); Request for Proposal (RFP); Contract

15. Reliability Analysis Planning, Tracking, and Reporting
PM formulates a comprehensive Reliability and Maintainability (R&M) program in support of Milestone A.
Reliability growth curves are included in SEP at MS A, Development RFP Release Decision Point, and in the SEP and TEMP beginning at MS B.
For ACAT I programs, PM prepares a Reliability, Availability, Maintainability and Cost Rationale (RAM-C) Report:
Documents the quantitative basis for the elements of the Sustainment KPP
Attached to the Systems Engineering Plan (SEP); updated in support of the Development RFP Release Decision Point, Milestone B, and Milestone C
Programs other than ACAT I develop RAM-C Reports IAW Component policy
See DoD Reliability, Availability, Maintainability, and Cost Rationale Report Manual, June 1, 2009 and Encl. 3, DoDI

16. Milestone A PM Presents: MDA Approves: Component Presents:
Acquisition Strategy (AS)
Business approach
Framing assumptions
Risk assessment
Should cost management targets
Waiver requests for statutory/regulatory requirements for next milestone
MDA Approves:
Materiel solution
Acquisition Strategy
Release of final RFP and source selection for TMRR contract(s)
Exit criteria to complete TMRR and Enter EMD.
10 USC 2366a Written Determination and summary report to Congress (ACAT I only)
Waiver requests
ADM (with approved affordability goals)
Component Presents:
Affordability analysis and proposed affordability goals (production and sustainment costs)
Component Cost Estimate (CCE)
Evidence of Full funding in FYDP
Note: NDAA 2-17 amends 10 USC 2366b requirement for full funding at Milestone B. As of Mar 2017, there has been no DoD regulatory change initiated yet.
A favorable Milestone A decision does not mean initiation of a new acquisition program – exception: ship programs

17. Post-MDD Analysis: Example 1, Single MOE
Which does not meet threshold?
Which meets threshold?
Which far exceeds threshold?
Which is close to threshold?
Which has the least cost risk?
Which has the most technical risk?
Which has the lowest overall risk?
Which has the most overall risk?

18. Post-MDD Presentation
For more detailed information on the AoA, browse CLR 151:

19. Takeaway: ICD, AoA, draft CDD, & Contract(s) for TMRR Phase
Materiel
Development
Decision
Milestone A
Strategic Direction
Joint Concepts
CONOPS
Feedback from field
Cost Estimate & $$
Full Funding in FYDP
Component
approved
Final RFP
for TMRR
Phase
Contract(s)
Draft
CDD
ICD
SPECs
Preliminary
CBA
AoA
operational
attributes
MOEs/
MOPs
KPPs/
KSAs/APAs
TMRR
Materiel Solution Analysis Phase
“The goal of each phase is to inform the next milestone decision and prep for the following phase…”

20. Back Up

21. 10 USC 2366a Written Determination at Milestone A (summarized)
The MDA determines in writing, after consulting the Joint Requirements Oversight Council (JROC) that:
(1) the program fulfills an approved initial capabilities document;
(2) the program has been developed in light of appropriate market research;
(3) if the program duplicates a capability already provided by an existing system, the duplication provided by such program is necessary and appropriate;
(4) with respect to any identified areas of risk, including risks determined by the identification of critical technologies, or any other risk assessment, there is a plan to reduce the risk;
(5) planning for sustainment has been addressed and core logistics capability requirements have been determined
(6) an analysis of alternatives has been performed
(7) a cost estimate for the program has been submitted, and the level of resources required to develop, procure, and sustain the program is sufficient for successful program execution;
(8) technology shall be developed after MS A only if the milestone decision authority determines with a high degree of confidence that such development will not delay the fielding target*, and
(9) the program or subprogram meets any other considerations the milestone decision authority considers relevant.
*programs initiated after 1 Jan 2019
The complete text for this determination is in the Defense Acquisition Guidebook (now under revision)

22. 10 USC 2366a Written Determination at Milestone A
The MDA certifies determines in writing, after consulting the Joint Requirements Oversight Council (JROC) on matters related to program requirements and military needs that:
(1) the program fulfills an approved initial capabilities document;
(2) the program is being executed by an entity with a relevant core competency function as identified by the Secretary of Defense; the program has been developed in light of appropriate market research;
(3) if the program duplicates a capability already provided by an existing system, the duplication provided by such program is necessary and appropriate;
(4) with respect to any identified areas of risk, including risks determined by the identification of critical technologies required under section 2448b(a)(1) of this title* or any other risk assessment, there is a plan to reduce the risk;
(5) That a determination of applicability of core depot-level maintenance and repair capabilities requirements has been made; the planning for sustainment has been addressed and that a determination of applicability of core logistics capability requirements has been made
(6) an analysis of alternatives has been performed consistent with the study guidance developed by the Director of Cost Assessment and Program Evaluation;
(7) a cost estimate for the program has been submitted, with the concurrence of the Director of Cost Assessment and Program Evaluation, and the level of resources required to develop, procure, and sustain the program is consistent with the priority level assigned by the JROC sufficient for successful program execution; and,
*10 USC 2448b. Technical Risk Assessments
Changes made by NDAA 2016; Changes made by NDAA 2017
Draft, February 16, 2017

23. 10 USC 2366a Written Determination at Milestone A, con’t
(8) that, with respect to a program initiated after January 1, 2019, technology shall be developed in the program (after Milestone A approval) only if the milestone decision authority determines with a high degree of confidence that such development will not delay the fielding target of the program, or, if the milestone decision authority does not make such determination for a major system component being developed under the program, the milestone decision authority ensures that the technology related to the major system component shall be sufficiently matured and demonstrated in a relevant environment (after Milestone A approval) separate from the program using the prototyping authorities in subchapter II of chapter 144B of this title or other authorities, as appropriate, and have an effective plan for adoption or insertion by the relevant program; and’’.
(8) (9) the program or subprogram meets any other considerations the milestone decision authority considers relevant.
Changes made by NDAA 2016; Changes made by NDAA 2017
Draft, February 16, 2017