Complex Acquisition of IAMD - National Defense Industrial Association

Complex Acquisition Issues in Integrated Air
& Missile Defense
Lessons Observed, Challenges, and Options
Henry ‘Hank’ Davis
Consultant to The Boeing Company
Focus Team Leader, Acquisition Path to Global IAMD Focus Team
National Defense Industrial Association (NDIA),
Strike, Land Attack, and Air Defense (SLAAD) Division
July 2010
Unclassified
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Global IAMD Acquisition Focus
Focus Team Task
• From… capability development implications, make specific
recommendations in the related areas of requirements for
acquisition alternatives and programmatic risks to leverage the
best of industry to develop and integrate (and test) existing and
emerging Joint capabilities into a seamless and flexible Global
IAMD capability, including Joint Integrated Fire Control (JIFC)
capabilities
What is an appropriate strategy for successfully acquiring a
Global IAMD capability?
Unclassified
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Global IAMD
Attributes of Joint Integrated Fire Control (IFC)
Integrated Engagement Space • High capacity, high speed, adaptive Battle
Management systems
Geographic Combat Area
Joint IFC, evolving from NIFC-CA concepts,
supports capability to neutralize and mitigate
effects of adversaries by destroying air and missile
threats in all domains (air, land, maritime, space,
and cyberspace)
• Globally distributed sensor nets, distributed
weapons platforms
• Weapons matched to sensors and fire control
capabilities
• Interoperable distributed track fusion and ID engines
with automated real-time correlation
• Robust tactical networks with interoperable real-time
data distribution systems
• Modernized Doctrine, Tactics, Techniques and
Procedures to leverage new netted concepts
Unclassified
Joint Engagement Zone (JEZ)
3

Global IAMD Capability --- “Window to the Future”
Global IAMD capability depends on in-depth transition to a net-centric,
service-oriented architecture “system of systems” concept
Unclassified
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Global IAMD Fire Control Network
Finding and Recommendations
Finding --- CEC fire control network architecture alone is insufficient to
provide fire control network for Global-IAMD capability.
Recommendations:
• Consider re-partitioning CEC system between the “radio” and the
“processing”… technology has rendered system architecture obsolete.
• Expand program/industry participation to re-architect and upgrade the
“processing” to facilitate integration into a wide variety of combat and
sensing systems to support a large scale Joint sensing network for
counter air and ballistic missile battle management & fire control … e.g.
updated network topologies, geodetic referencing, added filters
• Consider providing CEC “radio” element for expanding joint battle
management and command & control connectivity
Joint fire control sensing networks must employ “CEC-like,” composite
tracking capabilities capable of handling large numbers of network
contributors and very high track loads
Unclassified
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Tactical Data Links
Finding and Recommendations
Finding: JTIDS/Link-16 has limited capability for Global IAMD, including:
– Network architecture not designed for IAMD --- adequate for CTP/COP
– Native form has line-of-sight limitations --- airborne, point to point
– Track numbers limited
– Insufficient tracks for BM track cluster discrimination
– Latency: limits defended area and available battlespace
– No simultaneous reporting from multiple sensors (R 2 - one per track)
– Inconsistent data interpretations across Services
– System designed as situational awareness system and only works as fire control
against long-range ballistic missiles
– Needs broad digital air control for fighter contributions to IAMD
Recommendations:
• Assess suitability of transformational communications “tactical edge” programs
(Joint Tactical Radio Systems, Wide Band Networks, Link 16 updates) performance
and architectures to handle G-IAMD battle management and Joint Integrated Fire
Control demands.
• Assess the forward and backward interoperability with essential existing and
future elements of G-IAMD battle management and Joint Integrated Fire Control
• Define concepts for employment of Link 16 over a CEC-like radio element to
support netted sensors and Joint-Integrated Fire Control.
Unclassified
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Joint Integrated Air & Missile Defense
System of
Systems
Naval Integrated
Fire Control-
Counter Air
Joint
Integrated
Fire Control
Development of Global IAMD Capability in Joint
Engagement Zones is Complex & Highly Interactive
C2-Battle Mgmt Sensors Weapons Networks
• JFMMC-MOC
• Aegis C&D
• E-2D
• E-3 40-45
• 767 AWACS
• GTACS
• BCS-F & M
• Integrated Battle
Command System
• GMD Fire Control
• C2BMC
• Global
Engagement
Manager
• 737 AEW&C
• Others
• SPY
• JLENS
• E-2D Radar
• AWACS Radar
• TPS75
• Sentinel Radar
• AEW&C Radar
• G/ATOR
• Tactical Aircraft
ESAs
• TPY2
• UEWR
• Cobra Dane
• Cobra Judy
• SBX
• SBIRS
• DSP
• National Sensors
• DCGS
• ACIP-NEXTGEN ISR
• Single Integrated
Pictures ?
• Others
• SM-6
• Patriot
• Tactical
Fighters
• Advanced AA
Missiles
• THAAD
• GBI
• ABL
• SLAAMRAAM
• Others
• CEC-DDS
• JTIDS-
Link 16
• JTRS
• WNW
• GIG-BE
• GCN
• TCN
• WIN-T
• TSAT ?
• NCES
(including
real time
wireless)
• DIB
• Others
Unclassified
Joint Engagement Zone
(JEZ)
Development of “large scale system of systems” capability demands
robust system of systems engineering, integration, test, doctrine and
training development and common networks & communications
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System of System
Definition
System of Systems
Engineering
System of Systems
Integration &
Acceptance
Systems
Development
What Makes System Of Systems
Development Hard ?
• Mission Description
• Operational Concepts
• Technical Objectives and Goals (TOG)
• Performance Validation
• Evolution Strategy…
• Concept Development
• Trade Studies & Analyses…Performance
& Multi-role Equities
• Functional Allocation to Define System
Capability Specifications
• Verification / Test Objectives
• Engineering Process Control…
• Configuration Management / Control
• Interface Specification & Control
• Performance Assessment (Operational &
Technical) “virtual”
• Integration & Testing
• Doctrine and Training…
• Life Cycle Product Development
• Element Design Specifications & Interface
Control Documents (ICD)
• Hardware and Software Products
Unclassified
Defining
Objectives
Engineering
Design
Assembling the
System
Building the
Elements
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Systems of
Systems
Definition
SoS
Engineering
SoS Integ &
Acceptance
Systems
Development
System of
Systems
Characteristics
Government
Integrator
Government
FFRDC
Government
&
Independent
Contractor
Associate Contractor
Agreements (ACAs)
Unclassified
SoS Acquisition Options
Industry Integrator
Government
FFRDC
Industry Integrator
Industry
Integrator
(Not a Systems
Developer)
Some ACAs
Prime
Contractor
Government
FFRDC
Prime Contractor
CTR CTR CTR CTR CTR CTR CTR CTR CTR
Highly Interactive,
With Moderate
Elements
Large, Highly Interactive,
Multi-role With Many
Elements
Prime
Contractor
Some ACAs
Well Defined &
Contained With Few
Elements
Allocation of tasks & accountabilities between Government,
FFRDCs, Integrator/Prime and Independent Contractors define
spectrum of different acquisition strategies & associated risks
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Emerging “1 st Principles” of Successful
Large-Scale Development Programs
• Requirements
– Warfighter involvement institutionalized in acquisition strategy --- from concept thru development
– Transition from operational views to system of systems views --- the first 10% of development is
critical to success --- must involve large scale integrators.
– Set only top level performance specs (KPPs) and use large scale integrator to flow down to
procurement
• Acquisition Strategy
– Program structure & reporting level must reflect priority of development
– Clear responsibility, accountability, authority and resolve charter issues as a team.
– Continuous and open communications to give full insight into program health
– Large scale integrator must account for system requirements & interfaces and define test &
acceptance of elements.
– SOS developments are long and complex, spirals and concurrency are required & funded
• Architectures
– Must drive the acquisition strategy to keep management and business relationships clear.
– Involve thousands of elements and millions of interface requirements
– Use net-centric and service oriented to enhance competitive incentives across system of systems
• Business Models
– Architecture will drive the business models --- supplier management is most critical element
– Government and industry team must have highly competent and proven program & technical
leadership --- growing demographic challenges.
– Integrator award fees must be sufficiently high to attract qualified integration companies
– Large scale integrator business models must transform during acquisition cycle
Integrated capability developments are “game changers” in
government requirements/acquisition and industry cultures
Unclassified
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Global IAMD Acquisition Alternatives
Finding and Recommendations
Finding --- Large, complex integrated capability acquisitions challenge
both government & industry management culture and business models!
Recommendations:
• Propose a Global IAMD acquisition charter at Joint/OSD level…change
to capability based acquisition
• Broaden industry involvement to create government/industry teams by
competing and awarding multiple contracts to develop a range of
innovative Global IAMD architectural and acquisition strategies
Global IAMD acquisition strategy must leverage technology, program,
contracting, and business innovation from across industry and
FFRDC/UARC communities
Unclassified
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Unclassified
Backup Slides
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Global IAMD System Assessment
Finding and Recommendations
• Finding: There is no established real-time capability to assess performance
of BMD systems and interceptors in real-world tactical operations
Recommendations:
• Define requirements for “real-time assessment” of tactical BMD system
performance to enable rapid system updates:
– Data collection needs and concepts
– System fix concepts…eventually a real-time capability
• Work with MDA to establish BMD Battlefield Learning Group for BMD analysis
support:
– Pull technical expertise from MDA, service warfighters, FFRDCs, labs,
industry, and other stakeholders
– Integrate into planned test shots and operational testing to refine
requirements
Early fielding of Fleet BMD capability will reveal many unknown
performance risks…first shots in “anger” may miss!
Unclassified
13

Large-Scale Capabilities Acquisition
“Lessons Observed ‘Gurus’ ”
• Dennis Gormley… Monterey Institute, International Institute for Strategic Studies, Rand,
Pacific Sierra …Thought Leader in DoD policy changes since emergence of mass missile
threats
– Author of “Missile Contagion” … thesis: “…we are at a tipping point from missile threats, across
strategic to tactical levels.”
• Dr. Allen Adler… former DARPA executive… development of Future Combat Systems
acquisition and system of systems engineering processes
– System of Systems engineering & acquisition approach essential to successful large-scale
capability integration
• Dr. John Peller… former Rockwell-Boeing executive…Large scale capability
developments from Minuteman ICBMs to Missile Defense to Future Combat Systems
– Net-centric capabilities are acquisition “game changers” for Government and Industry
• David Kier… formerly Deputy NRO, Government PM for Special Programs, Lockheed PM
for National Team for C2BMC
– Risk management must span from requirements definition thru acquisition and acceptance
– Integrator business incentives are essential to bring the right industry capability to the table
• Dr. Jerry Augeri… Lincoln Labs involved in development and fielding of National Capital
Region IADS
– Global Sensor Integration Network Concepts … Advanced Service-Oriented network architectures
Unclassified
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Unclassified
Thoughts on a Global IAMD
Acquisition Strategy
• Unify tactical requirements ... Using broad area announcements to
develop system architectures and cost estimations
– Create an “outside the box” Government (DARPA-War fighter?)-Industry team to
work Joint system of systems requirements development with industry --- Move
JIAMDO Operational Views to System Views to underpin acquisition strategy.
– Focus on system of systems architecture and integration of existing and
emerging systems
• Use system of systems architectural elements and networks to drive
programs toward integration
– Define joint track manager and networks for surveillance and precision tracking
– Architect battle command in JEZ built upon NIFC-CA “concept” to merge ballistic
missile defenses with air defenses, to include defensive counter-air
– Focus on integration of space and airborne sensors for elevation and overlapping
sensor coverage
– Define integrated tactical architecture for Global IAMD to include warfighting and
planning elements
• Phase delivery of global IAMD capability to warfighters
– Consider regional and cross-AOR requirements and policy implications
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N2/N6 & N8 Realignment
Findings and Recommendation
Finding: N2/N6 and N8 realignment emphasizes “information” and
“user integration”
Recommendations:
• Charter a robust net-centric system of systems engineering and integration
capability to integrate warfighters into requirements development & analysis and
program definition…Consider significant competitive use of world-class
industry, FFRDC/UARC capabilities.
• Focus on “force-level systems engineering” of requirements by using
collaboratively developed mission threads/kill chains and design reference
missions employing warfighter in the loop simulations.
• Take deliberate action to mitigate risks to integration of ISR-SA and Integrated
Fire Control initiatives critical to Global IAMD
Navy staff realignment presents significant opportunity to transition to
capability based acquisitions
Unclassified
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Global IAMD Technical Architecture
Finding and Recommendations
Finding --- “Open standards” requires redefinition --- Integration must occur
at the data level, across large, ad hoc, tactical, real-time wireless networks
Recommendations:
• Use Global IAMD capability development to enable information sharing
and interoperability environment
• Open existing weapons systems for integration into the Global IAMD
network
• Follow commercial development of wired and wireless network standards
… they are making the investment
• Define systems as data centric…information exchange must handle many
contributors and users that will not have common systems
• Use commercial tools where timing, information assurance and data
integrity allow
• Reemphasize architecture education and training to transition to net
centric systems engineering
Integration across a tactical, ad hoc, wireless warfighting network demands
advanced net-centric engineering far beyond “open architecture” software
development concepts
Unclassified
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Global IAMD Network Imperatives
Finding --- Communications challenged/bandwidth limited environments
demand robust, secure and adaptive quality of service to meet timeliness
requirements in large scale network tactical operations
• Real-time execution
• Broad reach
• Rapid updates
• Secure
• Cyber hardened
• other
Recommendations:
Establish Government/Industry partnership in open network architecture,
collaborative development, including
– Interoperability services
– Adaptive communication services (QoS)
– Integral information assurance & cyber security
• Develop solutions using advanced network technologies that resolve scaling
and security concerns
Unclassified
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Unclassified
Global IAMD
Current Acquisition State
Finding --- Current integrated capability roadmaps lack sufficiently well
defined and enforced “Global IAMD objective architectural” concept
alternatives
• Joint capability architectural and systems requirements trades don’t drive sensor,
weapons and network alternative trades
•“Advanced Concept Demonstrations” do not transition well to integrated capability
acquisitions
Recommendations:
• Broaden acquisition concept from just “sensors on weapons platforms” to
advanced concepts of distributed sensor & weapons “server” networks…surface,
air & space, and advanced “ad hoc battle management /command concepts”
• Define requirements for G-IAMD system architectures to enable advanced
capability… from strategic, operational and tactical to fire control in one
architecture
• Architect netted weapons-sensor systems to match track performance with
accuracy requirements of a wide variety of weapons, fire control systems, and
decision makers across the war fighting net
• Scale existing netted sensor architecture to Joint capability
• Define interoperability and data sharing requirements for existing programs
sufficient to deliver integrated warfare capability
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Thoughts on Global IAMD Acquisition
Leadership & Organization
• Responsibility (Ownership…job description)
– Define GIAMD System of Systems system architectures to meet capability
required to execute essential mission threads (kill chains)
– Define and implement architecturally focused acquisition strategy
• Accountability (Delivery)
– Report to sufficiently high level acquisition authority
– System of System Architecture definition and existing element interface
requirements
– Program and capability deliverables and schedules
– Element acquisition strategies and implementation
– Associate program agreements
– Technology insertion strategies
• authority (Funding)
– Funding control of critical path architectural elements
– Element acquisition decisions where appropriate
– Reserve to handle concurrent developments where required to meet
incremental capability deliveries
– Must recognize service multi-role equity concerns
A single acquisition organization with Responsibility, Accountability, and
authority (RAa) for complex acquisitions across Global-IAMD reduces risk.
Unclassified
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