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Naval Center for Cost Analysis 19 February 2010

DoD/DON Acquisition Instructions and DON Cost Estimating Standard. Naval Center for Cost Analysis 19 February 2010. Outline. Context Managing the Defense Enterprise Whole of Government DoD Instruction 5000.02 Perspective Update Plan DON Instruction 5000.2E Changes Status

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Naval Center for Cost Analysis 19 February 2010

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  1. DoD/DON Acquisition Instructions and DON Cost Estimating Standard Naval Center for Cost Analysis 19 February 2010

  2. Outline • Context • Managing the Defense Enterprise • Whole of Government • DoD Instruction 5000.02 • Perspective • Update Plan • DON Instruction 5000.2E • Changes • Status • Cost Estimating Standard • Process • Timeline

  3. Managing the defense enterprise “Canonical post-cold war” U.S. DoD decision support systems JCIDS Identification and analysis of capability requirements PPBE Strategic planning; program and budget development Acquisition Development and procurement of weapon systems and AISs Light Heavy Context Cost-Analysis Support

  4. D3 Defense Diplomacy Development Whole of Government Netherlands 2008 analysis Other Approaches Ergst Denkbare Overstroming

  5. History • First acquisition framework in 1971

  6. The 5000 Process 1971 Major Programs $50M RDT&E or $200M Procurement FULL- SCALE DEVELOPMENT CONCEPTUAL EFFORT PRODUCTION/ DEPLOYMENT Program Initiation Full-Scale Development Decision Production Go-ahead Decision Deputy Secretary of Defense Packard signed the first DoD Directive 5000.1 in 1971. This 8 page document created the Defense Systems Acquisition Review Council (DSARC), and required three major decision points (milestones) with one supporting document. Over the next 37 years this “DoD 5000 process” will be revised 14 times... The 5000 documents have been issued as a directive, two directives, a directive and an instruction, a directive and a regulation, a directive an instruction and a manual, and a directive an instruction and a regulation, with combined page count of as little as eight (1971) to as many as 840 (1991). Currently a directive and an instruction with 90 pages total. Phases of the process have ranged from three (1971 to 1977) to four (1977 to 1991 & 1996 to 2000), to five (1991 & 2003 to 2008). Program initiation has been: SECDEF approval of the MENS (1977 to 1980), POM approval (1982 to 1985), and at a milestone: Milestone 0 (1985 to 1991), Milestone I (1991 to 2000), and Milestone B (2000 to 2008). The number of milestones and other decision points requiring a DoD level review have been as few as two (1982 - 1985) and as many as seven (2008). Milestone review requirements have ranged from as fewas one document (1971) to over 50 requirements (2008). The Secretary of Defense was the Milestone Decision Authority for MDAPs from 1971 to 1991. Currently, it is the USD(AT&L). The first DoD - level requirements document appeared in 1977, the Mission Element Need Statement (MENS). The second in 1991, the Operational Requirements Document (ORD). The format and content of both were directed by the DoD 5000 until transferred to the Joint Staff in 1996. And the saga continues..., But, let us return to the beginning

  7. FULL- SCALE DEVELOPMENT FULL-SCALE ENGINEERING DEVELOPMENT Full-Scale Development Decision Full-Scale Engineering Development Decision The 5000 Process 1971 1975 Major Programs $50M RDT&E or $200M Procurement (FY1972 dollars CONCEPTUAL EFFORT VALIDATION PHASE PRODUCTION/ DEPLOYMENT Program Initiation Production & Deployment Decision Production Go-ahead Decision • DSARC Created • SECDEF decisions documented in approved Decision Coordinating Paper (DCP)

  8. 0 I II III Phase 0 Phase I Phase II Phase III EXPLORATION OF ALTERNATIVE SYSTEM CONCEPTS FULL-SCALE ENGINEERING DEVELOPMENT FULL-SCALE ENGINEERING DEVELOPMENT DEMONSTRATION & VALIDATION PRODUCTION & DEPLOYMENT PRODUCTION/ DEPLOYMENT MENS Approved By SECDEF Program Initiation Program Initiation Full-Scale Engineering Development Decision Approval to Enter Demonstration & Validation Production & Deployment Decision Approval to Enter Full-Scale Engineering Development Approval to Enter Production & Deployment The 5000 Process 1975 1977 Major Programs (FY1972 dollars) $75M RDT&E or $300M Procurement $75M RDT&E or $300M Procurement VALIDATION PHASE Milestones are numbered Mission Element Need Statement (MENS) appears as first DoD-level requirements document

  9. Major Programs (FY1972 dollars) $75M RDT&E or $300M Procurement III Phase III FULL-SCALE ENGINEERING DEVELOPMENT FULL-SCALE DEVELOPMENT PRODUCTION & DEPLOYMENT Approval to Enter Full-Scale Engineering Development Approval to Enter Full-Scale Development Approval to Enter Production & Deployment The 5000 Process 1977 1980 Major Programs $100M RDT&E or $500M Procurement (FY1980 dollars) 0 I II Phase 0 Phase I Phase II EXPLORATION OF ALTERNATIVE SYSTEM CONCEPTS CONCEPT EXPLORATION DEMONSTRATION & VALIDATION MENS Approved By SECDEF Program Initiation Approval to Enter Demonstration & Validation • SECDEF Decision Memorandum (SDDM) implemented to document milestone decisions Milestones are numbered Mission Element Need Statement (MENS) appears as first DoD-level requirements document

  10. 0 Phase 0 The 5000 Process 1980 1982 Major Programs (FY1980 dollars) $200M RDT&E or $1B Procurement $100M RDT&E or $500M Procurement I II III Phase I Phase II Phase III DEMONSTRATION & VALIDATION PRODUCTION & DEPLOYMENT CONCEPT EXPLORATION FULL-SCALE DEVELOPMENT MENS Approved By SECDEF Program Initiation Approval to Enter Demonstration & Validation Approval to Enter Full-Scale Development Approval to Enter Production & Deployment Approval of JMSNS In PPBS is Program Initiation Concept Selection Program Go-Ahead Production Decision (Delegated To Components) • SECDEF Decision Memorandum (SDDM) implemented to document milestone decisions • Milestone 0 deleted • May proceed into FSD with delayed MS II – contracts must be written so program can be terminated at least cost to government

  11. 0 Phase 0 The 5000 Process 1982 1985 Major Programs $200M RDT&E or $1B Procurement (FY1980 dollars) I II III Phase I Phase II Phase III DEMONSTRATION & VALIDATION PRODUCTION & DEPLOYMENT CONCEPT EXPLORATION FULL-SCALE DEVELOPMENT Approval of JMSNS In PPBS is Program Initiation Concept Selection Program Go-Ahead Production Decision (May Be Delegated To Components) Production Decision (Delegated To Components) • Milestone 0 deleted • May proceed into FSD with delayed MS II – contracts must be written so program can be terminated at least cost to government • Milestone 0 returns

  12. IV V PRODUCTION, FIELDING/ DEPLOYMENT, & OPERATIONAL SUPPORT FULL-SCALE DEVELOPMENT & LRIP PRODUCTION & DEPLOYMENT FULL-SCALE DEVELOPMENT Logistics Readiness & Support Review Major Upgrade\ Replace Decision Approval to Enter Full- Scale Development & LRIP Approval For Full-Rate Production & Deployment Program Go-Ahead Production Decision (May Be Delegated To Components) The 5000 Process 1987 1985 Major Programs $200M RDT&E or $1B Procurement (FY1980 dollars) 0 I II III Phase 0 Phase I Phase II Phase III CONCEPT EXPLORATION/ DEFINITION CONCEPT DEMONSTRATION/ VALIDATION DEMONSTRATION & VALIDATION CONCEPT EXPLORATION Approval to Enter Concept Demonstration/ Validation Approval of JMSNS In PPBS is Program Initiation Concept Selection • Joint Requirements Management Board (JRMB) renamed JROC • DSARC renamed JRMB; JRMB renamed DAB • Competitive Prototyping Strategy required by law and DoDI 5000.2 • Milestone 0 returns

  13. IV IV V Phase III Phase III Phase IV PRODUCTION, FIELDING/ DEPLOYMENT, & OPERATIONAL SUPPORT CONCEPT DEMONSTRATION/ VALIDATION FULL-SCALE DEVELOPMENT & LRIP ENGINEERING & MANUFACTURING DEVELOPMENT DEMONSTRATION & VALIDATION PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT Determination of Mission Need Logistics Readiness & Support Review Major Upgrade\ Replace Decision Major Modification Approval Approval to Enter Concept Demonstration/ Validation Approval to Enter Full- Scale Development & LRIP Concept Demonstration Approval Development Approval The 5000 Process 1987 1991 Major Programs (FY1980 dollars) $300M RDT&E or $1.8B Procurement $200M RDT&E or $1B Procurement 0 I II III Phase 0 Phase I Phase II CONCEPT EXPLORATION/ DEFINITION Approval For Full-Rate Production & Deployment Approval of JMSNS In PPBS is Program Initiation Approval to Conduct Concept Studies Production Approval • Joint Requirements Management Board (JRMB) renamed JROC • DSARC renamed JRMB; JRMB renamed DAB • Competitive Prototyping Strategy required by law and DoDI 5000.2 • Acquisition Decision Memorandum (ADM) signed by USD(Acq) replaces SDDM • Provision for delayed MS II eliminated • ACAT structure created • JROC approved MNS replaces SECDEF approved JMSNS at MS 0 • Operational Requirements Document (ORD) appears in DoDI 5000.2, required at MS II and III

  14. I IV I Phase III Phase III Phase IV ENGINEERING & MANUFACTURING DEVELOPMENT PROGRAM DEFINITION & RISK REDUCTION DEMONSTRATION & VALIDATION ENGINEERING & MANUFACTURING DEVELOPMENT PRODUCTION, FIELDING/ DEPLOYMENT, & OPERATIONAL SUPPORT PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT Demilitarization & Disposal Determination of Mission Need Major Modification Approval Approval to Begin a New Acquisition Program Approval to Enter Engineering & Manufacturing Development Concept Demonstration Approval Development Approval The 5000 Process 1991 1996 Major Programs $300M RDT&E or $1.8B Procurement (FY1990 dollars) 0 II III Phase 0 Phase I Phase II CONCEPT EXPLORATION/ DEFINITION CONCEPT EXPLORATION Production or Fielding/ Deployment Approval Approval to Conduct Concept Studies Production Approval • Acquisition Decision Memorandum (ADM) signed by USD(Acq) replaces SDDM • Provision for delayed MS II eliminated • ACAT structure created • JROC approved MNS replaces SECDEF approved JMSNS at MS 0 • Operational Requirements Document (ORD) appears in DoDI 5000.2, required at MS II and III • Program Initiation moved to Milestone I • AIS acquisition programs folded into the DoD 5000 process • Competitive Prototyping requirement eliminated

  15. A B C 0 I II III Phase 0 Phase I Phase II Phase III SYSTEM DEVELOPMENT & DEMONSTRATION PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT CONCEPT & TECHNOLOGY DEVELOPMENT PROGRAM DEFINITION & RISK REDUCTION ENGINEERING & MANUFACTURING DEVELOPMENT PRODUCTION, FIELDING/ DEPLOYMENT, & OPERATIONAL SUPPORT Demilitarization & Disposal Determination of Mission Need CONCEPT EXPLORATION Interim Progress Review FRP Decision Review Decision Review Approval to Enter Concept & Technology Development Approval to Enter Systems Development & Demonstration Approval to Enter LRIP/ Production & Deployment Approval to Conduct Concept Studies Approval to Begin a New Acquisition Program Approval to Enter Engineering & Manufacturing Development Production or Fielding/ Deployment Approval The 5000 Process 1996 2000 Major Programs $300M RDT&E or $1.8B Procurement (FY1990 dollars) Major Programs $365M RDT&E or $2.19B Procurement (FY2000 dollars) Technology Opportunities & User Needs • Program Initiation moved to Milestone I • AIS acquisition programs folded into the DoD 5000 process • Competitive Prototyping eliminated • Program Initiation at MS B • Commitment to Production at MS C (LRIP) • Evolutionary Acquisition (EA) becomes preferred approach

  16. The 5000 Process 2002 2000 Major Programs $365M RDT&E or $2.19B Procurement (FY2000 dollars) Technology Opportunities & User Needs User Needs & Technology Opportunities A B C SYSTEM DEVELOPMENT & DEMONSTRATION PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT CONCEPT & TECHNOLOGY DEVELOPMENT Critical Design Review Interim Progress Review FRP Decision Review Decision Review Approval to Enter Concept & Technology Development Approval to Enter Systems Development & Demonstration Approval to Enter LRIP/ Production & Deployment • DEPSECDEF cancels all three DoD 5000 documents • Interim Guidance documents issued: “Defense Acquisition” for basic policy, and “Operation of the Defense Acquisition System” for implementation procedures • DoD 5000.2-R becomes “Interim Defense Acquisition Guidebook” • Program Initiation at MS B • Commitment to Production at MS C (LRIP) • Evolutionary Acquisition (EA) becomes preferred approach

  17. CONCEPT REFINEMENT CONCEPT & TECHNOLOGY DEVELOPMENT TECHNOLOGY DEVELOPMENT Concept Decision Decision Review Approval to Enter Technology Development The 5000 Process 2002 2003 Major Programs $365M RDT&E or $2.19B Procurement (FY2000 dollars) User Needs & Technology Opportunities A B C SYSTEM DEVELOPMENT & DEMONSTRATION PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT Critical Design Review Design Readiness Review FRP Decision Review Approval to Enter Concept & Technology Development Approval to Enter Systems Development & Demonstration Approval to Enter LRIP/ Production & Deployment Approval to Enter Concept Refinement • DEPSECDEF cancels all three DoD 5000 documents • Interim Guidance documents issued: “Defense Acquisition” for basic policy, and “Operation of the Defense Acquisition System” for implementation procedures • DoD 5000.2-R becomes “Interim Defense Acquisition Guidebook” • Defense Acquisition Guidebook (DAG) comes on-line • Joint Capabilities Integration and Development System (JCIDS) is born. MNS and ORD replaced. • Initial Capabilities Document required prior to Concept Decision • Capability Development Document required at MS B; Capability Production Document at MS C

  18. User Needs Technology Opportunities & Resources The 5000 Process 2008 2003 Major Programs $365M RDT&E or $2.19B Procurement (FY2000 dollars) User Needs & Technology Opportunities A B C MATERIEL SOLUTION ANAYLSIS ENGINEERING & MANUFACTURING DEVELOPMENT SYSTEM DEVELOPMENT & DEMONSTRATION PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT CONCEPT REFINEMENT TECHNOLOGY DEVELOPMENT Design Readiness Review FRP Decision Review Materiel Development Decision Concept Decision Post- CDR A Post- PDR A Approval to Enter Acquisition Process Approval to Enter Concept Refinement Approval to Enter Technology Development Approval to Enter Systems Development & Demonstration Approval to Enter LRIP/ Production & Deployment Engineering & Manufacturing Development • Materiel Development Decision precedes entry into any phase of the acquisition process • Competitive Prototyping returns; required during Technology Development Phase • Preliminary Design Review (PDR) after MS B requires a Post-PDR Assessment by the MDA • Defense Acquisition Guidebook (DAG) comes on-line • Joint Capabilities Integration and Development System (JCIDS) is born. MNS and ORD replaced. • Initial Capabilities Document required prior to Concept Decision • Capability Development Document required at MS B; Capability Production Document at MS C

  19. The 5000 Process 2008 Major Programs $365M RDT&E or $2.19B Procurement (FY2000 dollars) User Needs Technology Opportunities & Resources A B C MATERIEL SOLUTION ANAYLSIS ENGINEERING & MANUFACTURING DEVELOPMENT TECHNOLOGY DEVELOPMENT PRODUCTION & DEPLOYMENT OPERATIONS & SUPPORT FRP Decision Review Materiel Development Decision Post- CDR A Post- PDR A Approval to Enter Technology Development Approval to Enter Engineering & Manufacturing Development Approval to Enter LRIP/Production & Deployment Approval to Enter Acquisition Process • Materiel Development Decision precedes entry into any phase of the acquisition process • Competitive Prototyping returns; required during Technology Development Phase • Preliminary Design Review (PDR) after MS B requires a Post-PDR Assessment by the MDA

  20. History • Acquisition framework in 2008

  21. Schedule “Another year” before start AT&L staff needs to work many issues Anticipated changes Policy on Business Capability Lifecycle (BCL) processes Policy, processes, roles, and responsibilities for DCAPE and Deputy Assistant Secretaries for Cost and Economics in the military departments Other WSARA implications. E.g., creation of Director of Developmental Test and Evaluation Director of Systems Engineering Office of Performance Assessment and Root -Case Analysis NDAA 2011 provisions Planned Update BCL Process

  22. WSARA Impact

  23. WSARA Impact • Attempts to drive risk out of MS B decisions • Difficulty: lack of experience and data

  24. Policy changes from GAO audit on shipbuilding (May 2009) In commercial shipbuilding, Agreement before contract signing on: Ship concept Cost Delivery schedule Performance attributes Use of FFP contracts Planned Update Commercial Construct

  25. Recommendations Balance requirements, cost, technology by preliminary design review Retire technical risk and close gaps in requirements before contract award for ship design Use prototypes Demonstrate success Stabilize ship design before start of construction Identify steps for using fixed-price contracts for lead-ship design and construction AT&L only partially concurs Planned Update DON Construct

  26. DON 5000.2E Status • Schedule • “Remains on-track for 15 FEB 2010 submit to ASN RD&A/VCNO/ACMC for signature”

  27. DON 5000.2E Changes • Decrease Volume / Page Count of SECNAVINST 5000.2E • ASN RDA Active Policy (Memo) Scrub (ASN RDA) • C4I For New Construction and Conversion Ships (OPNAVINST 2300.xx) (ASN RDA / N6) • Service Cost Position Requirement (OSD AT&L / ASN FMC) • Independent Cost Assessments for MDAPs (ASN FMC) • Gate Review Process Changes (ASN RDA / DON CIO / N8) • CCA Confirmation Reporting Requirements for ACAT III & Below (DON CIO) • Work Breakdown Structure Standardization (OSD AT&L) • Navy Training Systems Requirements Update (OPNAVINST 1500.76B) (N151) • Key System Attributes in the Acquisition Program Baseline (J8 / OSD AT&L) • Life Cycle Signature Support Plan – Instructions and Template (OSD AT&L / N4) • Probability of Program Success (PoPS) Criteria (ASN RDA) • 09 NDAA SEC 815 – Unique Tooling Storage (OSD AT&L) (placeholder) • Business Capability Life Cycle Process (OSD AT&L / BTA) (placeholder)

  28. DON 5000.2E Changes • Manufacturing Readiness Assessments / Levels (DASN ALM & N4) (placeholder) • Integration Readiness Levels (DASN ALM & RDA CHSENG) (placeholder) • Contracting for Open Architecture (DASN ALM & RDA CHSENG) • Independent Logistics Assessment (DASN ALM) • Earned Value Management Updates (ASN RDA / CEVM / NCCA) • Urgent Requirements / Rapid Acquisition Updates (ASN RDA / N8) • Updated OPNAVINST 1500.76B – Naval Training Systems Plan (N125) • Minimizing Use of Ozone Depleting Substances (OSD AT&L / ONR) • Deputy Chief Management Officer Procurement Planning Agreements (OSECNAV) (placeholder) • ForceNet Changes (N6) • Program Management Agreements (DASN ALM) • Program Office Staffing Plans (DACM) • SECNAVINST 5420.188F (DASN ALM) (update vs cancel) • Oversight of DON-Originated IT contracts/procurements (INSIGHT) (DASN C4I) • Designation of Acquisition Sub-Programs (DASN C4I)

  29. DON Cost Estimating Standard

  30. Process

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