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Program Manager - Journal of the Defense Systems Management College Vo] XXTTT- No- 11. DSMC 19.0

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Program Manager is a vehicle for transmitting information on policies, trends, events,

and current thinking affecting program management and defense systems acquisition.

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J)EFENSE SYS'T
PROGRAM MANAGER

Journal of the Defense Systems Management College

Vol. XXIII, No. 3, DSMC 120

Published by the

DEFENSE SYSTEMS

MANAGEMENT

COLLEGE

PRESS 2 8

Commandant Contract for Change Integrative Experiential Brig Gen (Sel) Claude M. Bolton, Jr., USAF McalL opisLann

Provost and Deputy Commandant

Edward Hirsch Challenges are ahead. William R. Fournier

Dean A kyt rga aaeeteu Research. Consulting and Information Divisionketo I m

Dr. Adella E. Ritchie cation success.

Associate Dean of Information and

Director. DSMC Press

wilbur D. Jones, Jr.

PROGRAM ',-.,

MANAGER

Managing Editor

Esther Mi. Farria

Art Director

Typography and Design

Paula Crolsetlere

Program Manager (ISSN 0199-7114) is

published bimonthly by the Defense Systems

Management College Press.-

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Program Manager May-June 1994
S~NINETY-FIVE

10 15 19

The Army Reuse Center and Keeping Pace with Change International Defense

Program Manager Support William W. Bahnmaier Educational Arrangement Willim W.Passing a major milestone.

Marrea H. Rlggs "DSMC 95" and the acquisition enviSoftware reuse implementation for ronment.

PEO STAMIS.

Also

New DSMC Publication 13

PMC Advertisement 14

From Our Readers 20

Presentation to Acting

USD(A&T) 20

1995 Acquisition Research 0

Symposium 29 0

Potential Subscribers

Information 35

30 36 Book Review 38

The Cultural Implications of Inspectors General Auditor From the Commandant 39 JodOl

Change Training Institute /ow

Henry C. Alberts Paul F. Caron DSMC Alumni Association 40

Achieving the proper blend. Professional standards can be met. I

Program Manager Is a vehicle for transmitting information on policies, trends, events, and current thinking affecting program management and defense systems acquisition.

Statements of fact or opinion appearing In Program Manager are solely those of the authors and are not necessarily endorsed by the Department of Defense or the Defense

Systems Management College. Unless copyrighted, articles may be reprinted. When reprinting, please credit the author and Program Manager. and forward two copies of the

reprinted material to the DSMC Press.

Program Manager May-June 1994
CONTRACT FOR CHANGE

Challenges Ahead

Michael L. Tompkins

are a program manager (PM) - Housing. Should you buy a distances. In the new location, there

and you've moved to a new job house or rent an apartment in the new are no trains and distances to be travin a new town. The family will town? Should you keep the house in eled are greater.

join you after the children have the old location and rent it out? Will

finished the school year. Your new you want new furniture for a new These choices can be put in a more

job is the same as the one you left - house? With limited transfer money structured form by asking yourself a

managing a program. You will be in available and what you have in the few basic questions related to

the new town until you brirg a new bank, can you afford the things you economy:

computerized tracking system from need and want?

its prototype stage into production - What is the real or utility value

and to full fruition. Then, you either - Transportation. Should you buy of the things you need or want? What

will move back to the town from which or lease a new car? The old one has value will they provide to you and

you came or, perhaps, to another pro- high mileage and is more than six your family?

gram with a government contractor in years old. It worked well enough to go

another town. to and from the train station, taking - What is the cost of each item in

the children to and from school, and terms of their total cost? Is each item

What has this to do with defense for shopping, but these are all short expensive, not just in dollar value

acquisition and government service?

In answering, let's relate the following to your role as this new PM.

Problems Encountered

Choices you will have to consider

are housing and new furnishings,

schools for your children, acquiring a

new car, and how best to spend your

money to obtain everything you will

need for the move. Every dollar you

spend will be an investment in your . .4... - .o..*...• .

job, yourself and your family's future.

You'll want to evaluate wisely.

Some decisions you must make

are shown below:

Mr. Tompkins is Production Man- .. . .<:,

agement Specialist, Contractor Logis- ,

tics Support Division, Air Logistics Cen- .

ter, Tinker AFB, Oklahoma City, Okla. Te, aThoer invite reladersthoa O ghts .The Contractor Logistics Support Center, Oklahoma City Air Logistics Center, provides The author invites readers' thoughts logistics support for the KC- 10 59-aircraft fleet. The KC- I0 is the world's largest tanker/cargo

and comments. aircraft.

Program Manager 2 May-June 1994
invested but in terms of space alloca- training, supplies, buildings and fation and general upkeep? This ques- A t del of cilities, support equipment, and all

tion involves both your time and the other vendors and things required

money. our nation's to use and maintain everything we

purchased. Suddenly, because of a

- What is the likelihood of any of illo c i political change of mind somewhere

these purchases becoming outmoded, faraway, we were forced to move to "a

thus, requiring storage and cost of new job in a new town where things

upkeep without a benefit derived from would be different."

their possession? For example, you i a i the

may need to store the furniture and Using Reason

yard equipment from your old home if hihl • a • c A great deal of our nation's money

you decide to move into a smaller is invested in items and in the highly

house or apartment. and s trained and skilled people required to

use them. But, what value do they

Where We Are people rq ie have now and in the future?

This country has gone through an

extended period of knowing what we [o us the'] i. Let's return to the new job in the

needed to buy, because we knew who new town. Consideration must be

our enemieswere and theiradversarial U11, what val[l" given to all the challenges this brings.

capabilities. We knew where the Better transportation must be found

things we bought would be used, how do rhe have - a new car or a later model with low

long they would be needed, for what mileage. Housing chosen may not be

purpose, in what operating environ- 0 Mi ill the as convenient as in the old location

ment, andwhat personnel skills would where the stores and schools were

be required to use and maintain them. ftl t re within walkingdistance. The new town

Our situation was clear and accepted may be somewhat isolated, resulting

easily by almost everyone. The cost in a longer drive to the new job

was not as important as the sense of So, we spent our money and stocked and driving to a distant, larger town

security our systems could provide, up on systems, personnel and their for shopping.

Longer trips mean more frequent

0 servicing of the car; added mileage

i. means trading in sooner than ever

Sbefore. Also, since a move may occur

D again within 2-3 years, equal consid-

.5 eration should be given to leasing as

Sto buying.

Is buying a new home the right

decision or, since another move may

come up in a few years, is renting a

townhouse or apartment best? Should

the home in the former location be

sold and proceeds banked, or rented

out since returning to it upon job

completion is a possibility?

Factors To Consider

When making these decisions, the

"- :•- , ' ** following should be considered:

.k'. -What is the real or utility value?

The AAR Corporation recently was awarded a limited-term subcontract to provide total line

maintenance and scheduled heavy maintenance on the AWACS E3 radar and communica- What are the total investment

(tons training aircraft. costs?

Program Manager 3 May-June 1994
- What is the period before newly FIGURE 1. Evaluating What about the investment in repair

acquired items become obsolete and the Decision parts, their handling and repair and

no longer used? storage equipment to stock them, and

all the other related expenses involved

You've decided to buy a new car Utility Value in the system's acquisition, including

because you will keep it for a long Low ................................ High new transportation vehicles and setime. Although you know you will put curit requirements?

many miles on it, you have decided Investment Cost

that if you take a car-care course at High ................................ Low Period Before Obsolescence. What

the local vocational-technical school Period Before Obsolescence if it is likely that a smaller, simpler

and invest in a few specialized tools, and more portable system will come

you can keep it well maintained. The Short ............ Long along - a system at lower cost to buy

car will serve you for more than 100 and operate. After all, we are talking

thousand miles. So, purchasing a new about a relatively new and changing

car, in this situation at least, is the 2. High investment cost (The apart- technology.

better choice for you than leasing ment has no investment cost, only a

because it will have: monthly charge for living space rental.) Use the chart in Figure 1 to evaluate the decision.

- A high utility value, because 3. A relatively short period before its

you must have a car to drive. A leased obsolescence. You may have to move. Using the chart in Figure 1 and the

car would provide this as well. PM's new computerized tracking sysBased on the above reasons, buy- tem as an example, we can see this

- A high investment cost. The cost ing a new house is ruled out in favor new acquisition has a:

of a leased car would remain constant of leasing an apartment.

and, accumulated over time, would - High utility value (far right on

be high. Payments on a purchased Extending Personal chart)

car would end, but its service would Financial Logic

go on beyond the last payment, To the Job - High investment cost (far left on

thereby reducing its real investment. Consider the PM's computerized chart)

tracking system and applying this - By valuing the new car for its same method of new acquisition as- - Long period before its obsolestransportation or utility value rather sessment to it. cence (far right on chart).

than for its newness or market value,

its period before obsolescence will be Utility Value. How useful is the Thie best two-out-of-three choice is

extended. A leased car would not be- total system including its equipment, to buy the new system.

come obsolete. A new car has: facilities and people? Does it have

many other applications, or is its value What the new system had was a:

1. High utility value limited to narrow parameters requiring specific threats or operational ap- - High utility value (far right on

2. Low investment cost, considering plications and environments? What chart)

all factors related to its cost and pro- about the equipment needed to field

jected operating expenses over the it? Can any of it be used or modified to - High investment cost (far left on

period it will be kept support other systems, thereby in- chart)

creasing their own utility value? What

3. A long period before its obsoles- about the utility value of the people - Short period before its obsolescence because it will be kept a long required for operation and mainte- cence because of an impending

time, and it's not likely a better mode nance. Aren't they and their training a change in system technology that

of transportation will be available, part of this system's acquisition? could cause it to become obsolete

very soon (far left on chart)?

A new car, then, is a good acquisi- Investment Cost. Is the system extion because of the cost. pensive, in real terms, considering its The new choice is to lease the new

total cost including its people and system rather than buy it, because

A new house would have: their training? If a new building must leasing limits government investment

be built to house the new system and in this system and allows for change

1. High utility value, but so would an its people, isn't the cost of that build- so a better system can be adopted

apartment ing part of the system's cost, too? more easily when it comes along. Of

Program Manager 4 May-June 1994
course, a new system could be con- it be more prudent from its acquisitracted or leased for its period of ser-[l fe tion to be able to buy some things and

vice, too. contract for the service or use of othI•4 .. L SiI[ollI , lers, even the complete system itself?

The Other Choice Is the point of acquisition derived

When our country needed to be have file -ali benefit or property ownership?

able to react to the threat of a total

nuclear war, we relied heavily on our Lif[![S tic of Contracted support can:

absolute possession of our means to

field and support our nation's de- d--i a 11 - Limit government risk in the

fenses. Everything needed to do that long and short term by limiting its real

job had to be owned and controlled in hi"iM• and investment in people and things

order to be depended upon at a

moment's notice, moved quickly over I U-- Reduce overhead and operating

possibly great distances, and used for expenses by paying for only that porthe purpose for which they were in- tion of goods and services actually

tended. used

That is no longer the case. Today, - Reduce the need for storage,

in our "new world order," we are left lnd I- c 1] l overall system management, and parts

with a huge investment in things that inventory controls because we do not

may very well have become obsolete 0 have the support responsibility of

due to change. If these tools-of-war ownership

can be adapted to new uses, their 4-o'ulllrv al [f

utility value will increase, their over- - Substantially reduce changeover

all investment cost will be reduced, 1U[011CY h!s •de 1 costs in order to adopt new, rapidly

and their period before obsolescence changing hardware and technologies

will be extended. In other words, they

will be kept because they are needed - Increase accountability and our

and the cost to keep and maintain hardware lines of logistical support, means of total overall cost assessthem is not prohibitive considering trained personnel, and all else related ment for decision making by limiting

their benefits. that is required to field it just to have costs to a single service source and

the system available for use? Wouldn't relating costs to real-use time

In the commercial world, two ways

to acquire the use of things needed

have been to buy and own them, or 0.

rent them for the time period during

which they will be needed and used. -

Both acquisition methods have always been equal in the personal and

business finance worlds.

In defense acquisition, we have .

the same latitude of choices as the

business and personal worlds have

always enjoyed, and we can save our

country a lot of money besides. If you

were the PM mentioned earlier in this

article, would you limit yourself to

buying and owning only the things

you need? Or, would you go through

a process of cost evaluation and risk

assessment in order to get the things

you need at the lowest possible cost

to you? Is it necessary to buy a sys- , • 

tem, its supporting data, paperwork, The Ground Launched Cruise Missile System is maintained by contracted support.

Program Manager 5 May-June 1994
- Decrease the need for sole- Sharing the Load

source hardware vendor support, Why shotild Ive o Contracted support is service withthereby reducing regional political out the encumbrance and cost ininvolvement (Vendors who provide volved in ownership. And, it lets busiservice and commercial support will c'! ltil[tle I o ness and industry share with us

be more numerous and competitive equally in the risks, investments and

than those who provide only a stock created employment derived from our

of sole-source hardware and informa- nation's defenses. As long as we contion.) a tinue on our path of business-as-usual,

using the same old system of organic

- Decrease the cost and need for ownership preferred over contracted

buildings, maintenance personnel, service, we run the risk of tying up our

and depth of operator training, nation's resources in things we may

not need. After 50 years of waging the

Most important, contracted Cold War, our regulations, our orgasupport can adapt more readily to nizational structures, our training, and

change. Z" our methods of acquisition and decision making are clearly in favor of

Contracted support is no longer doing business in the same old way.

the last alternative in a selected ca Isn't it time to consider change?

program's acquisition. It is now, as it

has always been, simply the other Taking Advantage

way of doing business. w i Of Change

Of course, all the things we need

Contracted support, or renting Z" cannot be contracted. Defense is not

rather than owning the things we need, a for-profit business constantly driven

has been used successfully for the air by profit and the bottom line. As prorefueling aircraft KC-10; Special Air fessionals, though, we can conserve

Mission (SAM) C-137; Ground our nation's wealth by taking advanLaunched Cruise Missile program; tage of change and altering how we do

more recently, the E3 AWACS; and business when new opportunities are

many other systems. These systems presented. "Contracted support" and

always have been consistently reli- organic ownership are equal in our

able and fully capable of fulfilling all of combat that could stand by itself in daily lives and in business. Shouldn't

of their mission needs. Yet, is con- the exploding furnace of earth's "last they be equal in every decision phase

tracted support considered equal to great war." of defense acquisition, as well?

what is termed in our acquisition world

as "organic" ownership? Enemies today may very well be Department of Defense Instruction

friends tomorrow, and our defense (DoDI) 5000.2, "Defense Acquisition

The Deciding Variable: needs are inaconstant state of change. Management Policies and ProceCost vs. Time Why should we continue to invest our dures," states: "Total System AcquisiWhen a system or piece of equip- nation's resources in the same old tion. Acquisition programs shall be

ment was needed to counter the threat system of purchasing "total capabil- managed with the goal to optimize

of total war, a war that could threaten ity," with its resulting duplication of total system performance and reduce

not only the system but also its lines hardware and effort? Like the PM and the cost of OWNERSHIP [author's

of maintenance and material support, his house and car, the choices we emphasis added]." (As stated, ownerit was necessary for the entire system have are the cost of our investments ship is the driving purpose of defense

to be bought and maintained for a vs. the length of benefit or utility value acquisition.)

long period of time. We and our en- we can expect to derive from their use

emies were caught up in a real war of and service. The threat of total war is Contracted service is not an equal

massive indebtedness and spending not as great as it once was. Con- force in acquisition. In fact, it is selto do this, we had to buy everything tracted support can help us to take dom mentioned in acquisition texts.

needed to meet or exceed what the advantage of that change by helping When dealing with the forces of

other side had bought, and we had to us to buy only the service we need change, it is the best way of doing

be able to field each system as a rather than all the things needed to business because it reduces both risks

complete and fully supportable "unit" produce that service, and our investment in things.

Program Manager 6 May-June 1994
Chiniv c 'n wvork tor u". Pca1us. implied in this and other statements

01 it nee: opportunities are being of- anid texts.) DS--C I I Crt -In ,,V, spncialiZed skills and REGIONAL OFFICES

;ohs c-[ated Is well. Contracting for Service

Having what is needed when it is in addition to the main campus at Fort

Thir; theory is advanced in DoD needed to ensure a system's use and Belvoir, Va., the Defense Systems ManDirecti-,e 5000.1, under "Contract survivability has always been the goal agement College (DSMC) has four reType Seiection. The contracting ap- of logistics and mission support. The gional offices. Conveniently located at t, major defense acquisition centers, they

proach selected for each acquisition factor that has overshadowed all ac- ar dufense ain cantes the

phase must permit an equitable and quisition decisions for the past 50 offer customers a wide variety of sersens;ble allocation of RISK( between years has been how to do this and still

Government and Industry." (How best maintain a syste m's long-range mois this done than by sharing the cost in bility during the threat of an all-out In 1993, more than 100 D3MC classes

both people and things with busi- nuclear war. The answer to this prob- were provided in the regions. This acnessý) lem has been to buy and own every- counted for 48 percent of all DSMC

thing, and in large redundant quanti- students. The regions also provide con-

"The DoDI 5000.2, further states: ties. sulting services, information dissemi-

"Acquisition Strategies. The follow- nation and research assistance to their

ing statutorily imposed requirements To have a system fully capable in a customers.

apply durin.g, Phase 0: Competitive time of need no longer requires own- Write, telephone or fax one of the

Alternative Development and Produc- ing it and its means of support, too. following regional offices for acquisition. Acquisition strategies must be The system must only be fully ca- tion assistance:

prepared by the Secretary of Defense pable of achieving its purpose at the

(as delegated) and must allow the time it is needed. Contracted service DSMC CENTRAL REGION

option for COMPIETITIVE ALTERNA- puts more risk in the hands of busi- 4300 Goodfellow Blvd.

TIVE SOURCES [author's emphasis ness, and it creates new jobs for us Building 104F

added] for the system and EACH and the public as well. It lets them St. Louis, MO 63120-1798

[author's emphasis added] major sub- share in the costs and the responsi- Corn: (314) 263-1142

system under the program through- bilities of providing and maintaining DSN: 693-1142

out the period from the beginning of our nation's defenses. To turn change Fax: (314) 263-1719

full scale (engineering and manufac- to our advantage requires the time (Director: Dr. Pulius Heln

turing) development through the end and effort to study it, and seeing our Asst: Mrs. Patty Predith)

of procurement. (10 U.S.C. 2439 world of defense acquisition in newer, DSMC EASTERN REGION

(reference (0)" (Hardware purchase bolder ways. 29 Chennault Street

rather than service sources are Hanscom AFB, MA 01731-1706 Corn: (617) 377-3583/93

DSN: 478-3583/93 " •', : : Fax: (617) 377-7090

• . ;(Director: Mr. Rich Stillman

- ' Asst: MS. Tina Callahan)

DSMC SOUTHERN REGION

Building 7446-B, Room 5

Redstone Arsenal, AL 35898-5070

Corn: (205) 876-2730/53

DSN: 746-2730/53

'Fax. (205) 876-2730/53

(Director: Dr. Jay Billings

Asst: Ms. Doreen Jurgielewicz)

DSMC ,WESTERN REGION

- K, 2420 Vela Way •.,, Suite 1467

SLos Angeles AFB, CA 90245-4659

"Corn: (310) 363-1159/1219

DSN: 833-1159/1219

Fax: (310) 363-5992

-- - (Director: Mr. Jerry Chasko ......- Asst: Ms. Ruth Davenport)

Special Air MtXsiorn (SAM) C-. 37.

Proginm Mtnnaqer 7 Moy-Juoe 1994
INTEGRATIVE

EXPERIENTIAL LEARNING

A Key to

Program Management Education Success

William R. Fournier

more than 20 years, the Defense

if Systems Management College

f (DSMC) has consistently provided one or more Program Management Course (PMC) capstone integrative experiential exercises. These

exercises have been refined and revamped to adjust to changing world

events and acquisition policy shifts.

The DSMC Integrative Program __'-____-____________

Management Department is unique "

in its all-encompassing use of integrative experiential learning. Integrative

learning is critical for successful program management. It helps program

managers (PMs) understand the tradeoffs and natural conflicts that arise as

a result of functional interest. It provides functional managers with a better understanding of the interrelationships among different functions on defined by F. Gerald Brown as "learn- pate with a higher level of commitany particular issue. ing how to perform a specific act or ment during the educational process.

operation by doing it ('how to' learnIntegrative learning is defined as ing); or learning complexities of a The experiential learning cognitive

the learning which combines two or professional role by experiencing the domain has the major advantage of

more functional disciplines; i.e., con- milieu in which the role is performed giving a student the opportunity to

tract management, funds manage- and attempting to perform parts of the deal with Bloom's taxonomy in levels

ment, systems engineering, logistics role (role socialization)."' of comprehension, application, analymanagement. Experiential learning is sis, synthesis and evaluation.2 The

Requiring Students to major disadvantage of experiential

Take an Active Role learning is that it is time-consuming.

Experiential learning includes ex- The main focus of the exercises should

ercises beyond lecture/discussion be on the process issues as proposed

Mr. Foumier is a Professor of Engi- such as simulation, case study, prac- to the specific content of the topic at

neering Management, Integrative Pro- tical exercise, role play and critical hand. All integrative experiential

gram Management Department, De- incidents. They require students to learning exercises build upon the stufense Systems Management College. take a more active role and partici- dents having knowledge-based funcProgram Manager 8 May-June 1994
tional classes and on members of the cludes a multiple disciplines approach 4. Provides an opportunity for the

class freely sharing their experiences to specific critical topics. The IS exer- inexperienced or junior-ranked stuin program management. cises are more involved in the leading dents to experience being a PM.

and controlling aspects of program

Currently, the PMC includes four management. 5. Provides a chance to explore diftypes of integrative experiential learn- ferent leadership styles, organization

ing lessons which are predominately Hypothetical Program concepts and management strategies

integrative experiential learning in the Management Office (PMO) in a flexible, nurturing environment.

PMC core curriculum. The four types The GS simulations are the most

are Industry Programs (IP), Program flexible and the longest exercises in The GS reinforces good manageManagement Decision Briefing the PMC curriculum. Students plan, ment practices, clarifies limitations of

(PMDB), Integrated Subjects (IS), organize and role play a hypothetical less-desirable management practices,

Experiential Learning (EL), and Grand PMO from the pre-Concept Explora- and highlights challenges of the acSlam (GS). Some other functional tion Phase to shortly after MS IT. The quisition processes. It provides stusubject areas such as manufacturing GS is wider in scope than IS; how- dents with an opportunity to reflect

management, principles of program ever, students obtain less shared depth on the differing demands of early

management, and managerial devel- in the understanding of issues. phases in the acquisition life cycle.

opment use integrative experiential

learning along with other types of In a specific GS, as all students In summary, these integrative exlearning as a capstone to their other cannot role play the PM, many stu- periential exercises are critical to the

types of classes, dents obtain detailed knowledge of program-management education prooperating in one functional area and cess. They provide students with a

IP Students a general understanding the respon- chance to take risks and apply new

Organize the Program sibilities of other functional areas. and different program- management

The IP uses an outsider's perspec- The GS utilizes section outbriefs and techniques in a comfortable, nurturtive to examine a program and see the role rotation to normalize the learn- ing classroom environment. The wisdifferences between government and ing to the application level or above. dom students obtain should improve

contractor PMs. The IP students or- The GS tends to be concentrated on management of future DoD programs.

ganize and run the program. The fac- the organizing and planning aspects

ulty role is administrative and facili- of program management. The IS, IP

tated learning. Its broad goals are to and PMDB lessons learned should be Endnotes

promote the understanding of used in planning a section's GS proindustry's role in acquisition, produc- gram. The GS is a unique exercise as 1. F. Gerald Browne, "Three Types of

tion processes, and types of issues it is one of the longest continuous Experiential Learning: A Non-trivial

typically encountered during manage- program-management educational Distinction," New Directions for Expement, of real acquisition programs. It simulations in use. riential Learning: Developing Experiencourages considerable tailoring to ential Learning Programs for Profestheir learning desires, goals and needs. The GS allows the following pa- sional Education, Vol. 8 (San

rameters that few other education Francisco; Jossey-Bass Publishing,

The PMDB is an individual exer- exercises provide: 1980), p. 14.

cise that requires students to create

and present a decision briefing on an 1. Students must make and abide by 2. Ted Bloom, Using the Taxonomy of

acquisition issue. It emphasizes a logi- their decisions in a fairly realistic, Educational Objectives, 1956, p. 37,

cal thought process and professional nonthreatening environment. "Comprehension is defined as the

briefing skills. The PMDB encourages ability to grasp the meaning of mateeach student to research a chosen 2. Provides a chance to test current rial. Applications refers to the ability

acquisition issue deeply. acquisition policy (i.e., the current to use learned material in new and

GS is first to test many DoD acquisi- concrete situations. Analysis refers to

The IS are faculty-organized topics tion initiatives for a simulated mul- the ability to break down material

concerning events after Milestone tiple-phase program). into its component parts so that its

(MS) 11. The two types are work-group, organizational structure may be unlesson-learned exercises and role- 3. Provides an opportunity for stu- derstood. Synthesis refers to the abilplaying exercises. They utilize real dents to work in an unfamiliar area ity to put parts together to form a new

and hypothetical system examples to and obtain a wider perspective by whole. Evaluation is concerned with

promote the successful application of spending a few days "wearing some- the ability to judge and evaluate the

acquisition management. This in- one else's shoes." value of material for a given purpose."

Program Manager 9 May-June 1994
THE ARMY REUSE CENTER

AND PROGRAM MANAGER

SUPPORT

Software Reuse Implementation for

PEO STAMIS

Marrea H. Riggs M any program managers (PMs) X0

have been absorbed by the debate about whether or not P

software reuse offers real benefits in terms of increased quality,

lower cost and shortened schedules

without major, up-front investment of

scarce resources.

The Army Reuse Center (ARC) is in

the business of making reuse beneficial by supporting PMs in integrating

reuse into the software development

life cycle (SDLC). In providing this

support, the ARC has developed and

maintained a full range of products i' -A

and services geared toward assisting

projects of all types and sizes. It has Left to right: Roy Lloyd, Henry Marshall, Brenda Lawter and Debbie Laforme in front of the

successfully initiated reuse activities Army Reuse Center exhibit.

that have taken Management Information Systems (MIS) software reuse Reuse activities focused on establish- and installed "Lessons Learned" and

from "concept" to "proof of concept" ing the infrastructure within PEO "Cookbook and Standards" IEF prodand realized actual cost savings/cost STAMIS essential for long-term sys- ucts. These reusable products will be

avoidance. tematic reuse, implementation of the useful in achieving technology transFY-1993 Reuse Plan, and pursuit of fer of the IEF software development

Real Reuse Successes continued FY-1993 cost avoidance, methodology.

The ARC supported the Program

Executive Office, Standard Army The final cost avoidance estimates Another reuse success was realManagement Information Systems for the FY-1993 PEO STAMIS soft- ized by the joint Operations, Plan-

(PEO STAMIS), in successfully ware reuse implementation effort ning and Execution System (JOPES)

achieving its FY-1993 reuse goals. show that a total of 10,473 lines of Scheduling and Movement (S&M)

code were reused. Using the ARC subsystem. The JOPES S&M softMs. Riggs is Director of the Army cost model, the total FY-1993 cost ware is designed to allow users with

Reuse Center, U.S. Army Information avoidance for PEO STAMIS is esti- proper permissions access to a largeSystems Software Center, Information mated at $568,226. In addition to scale database of Department of DeSystems Command, Falls Church, Va. code components, the ARC certified fense (DoD) operational plans

Program Manager 10 May-June 1994
(OPLANs). The system incorporates gineers, and trainers skilled in reuse

features that are common to many The Reuse identification, support and integraother large information systems, in- tion throughout the SDLC.

cluding the generation of standard

reports and ad hoc retrieval. The conim [ttee The FY-1993 reuse activities foJOPES S&M designers felt that these cused on critical aspects of the PEO

common capabilities were good can- tilSTAMIS rThese in- didates for reuse. excha ge io cluded management by the Reuse

:Steering Committee, Reuse EducaThe ARC recently certified and in- lli1: ti ll tion and Technology Transfer, Dostalled selected parts of the Standard main Engineering and Reusable AsInstallation/Division Personnel Sys- i o current set Management. Figure 1 depicts this

tem-3 (SIDPERS-3) software, an Army aLn planine multifaceted approach.

personnel system under PEO STAMIS,

into the reuse library. The design of software reuse Reuse Steering Committee. The

the SIDPERS-3 system emphasized a Reuse Steering Committee is an exlayered architecture. This approach ecutive-level management committee

contributed to the successful comple- th- Arnii/ and which guides and facilitates the intion of the immediate development corporation of software reuse within

goals, and paved the way for future DID. PEO STAMIS. This committee proreuse of major portions of the vides a forum for identifying and disSIDPERS-3 design and code. cussing requirements, issues and opcapabilities and stay within the bud- portunities associated with software

Through advanced planning, get and schedule constraints." reuse within PEO STAMIS. The ReJOPES developers knew that portions use Steering Committee encourages

of the reusable code donated by the Proven Products and Services the exchange of information and ideas

SIDPERS-3 system were a close match The ARC is a recognized leader in on current and planned software reto their S&M requirements. In the software reuse in the DoD MIS com- use initiatives within the Army and

final count, JOPES S&M reused more munity and the primary focal point DoD.

than 27,000 lines of Ada code from for implementation of software reuse

the SIDPERS-3 components. Through within the Department of the Army Reuse Education and Technolthe ARC cost modeling, JOPES S&M (DA). It was established to support ogy Transfer. Since the reuse of

realized an estimated cost avoidance the development and fielding of reli- software represents a radical transof approximately $1.15 million in de- able, high-quality systems, while re- formation in software engineering

sign and development costs. As a ducing time and resources required to practices and requires a dramatic

senior computer scientiest stated, develop and maintain those systems. change in skills required for the devel-

"The reuse process was critical to The ARC is a true reuse support cen- opment of software, retraining perprovide JOPES with the necessary ter, providing a cadre of analysts, en- sonnel is necessary to ensure success

and to develop a base of support

FIGURE 1. Multifaceted Approach to Software among managers and developers for

Reuse Implementation these new technologies. The ARC

works in coordination with the PEO

Domain Reusable Asset STAMIS to establish and implement

Implementation Acquisition short- and long-term reuse training

goals to support this transformation for all levels of personnel from software engireers and support staff to

manage executives and software

development trainers.

Steering Committee Education/ Domain Engineering. A domain

Activities Technology Transfer is a family of systems that share a

common mission, function or set of

, . common capabilities and data. DoDormain main Engineering is an evolving, stateAnalysis of-the-art software engineering proProgram Manager 11 May-June 1994
cess for identifying modeling, build- future reuse of those selected, high- ments to focus efforts on planned,

ing and verifying the commonality demand components. The heart of systematic reuse within PEO STAMIS.

present among the different software this support is the ARC library of The FY-1994 Reuse Implementation

systems within a domain. It identifies RSCs. The library system is an inter- Plan (RIP) focuses on coordinated

how systems relate to other systems active, multiuser system that allows and mutually supportive reuse activithat have been built, as well as how users to classify, store, analyze and ties within PEO-STAMIS, on-site rereusable software components (RSCs) retrieve RSCs. The faceted classifica- use engineering support for key proproviding capabilities common tion scheme used to search forneeded grams, continued evaluation and

throughout a domain can be taken components describes RSCs in do- incorporation of developing technolofrom one set of systems and reused main-specific terms descriptive of the gies, and planned reuse within PEOand integrated into systems being built common components found within a STAMIS and across principal Army

today and those in the future. Two domain. This process facilitates soft- domains. Primary FY-1994 objecmajor components of the ARC Do- ware reuse by offering developers the tives are to complete the institutionalmain Engineering method are Domain opportunity to match their applica- ization of software reuse within PEO

Analysis and Domain Implementation. tions needs with existing software STAMIS and achieve significant,

products. quantifiable cost avoidance/cost - Domain Analysis. Domain En- savings.

gineering begins by identifying and The ARC library is part of the Debounding a particular domain. Do- fense Software Repository System Return on Investment

main analysts take this information (DSRS), which provides ARC custom- In addition to other reuse benefits,

and produce a model of the common ers with access to similar libraries of the RIP targets short-term cost avoidrequirements in the domain. This RSCs at Defense Information Sys- ance and longer-term cost savings.

shows what is similar among systems tems Agency/Center for Information The reuse of software components

and, just as importantly, exactly which Management (DISA/CIM) and other within the SDLC can introduce savaspects of each system are unique. Service and agency support centers. ings, or cost avoidance, in terms of

Domain analysts then identify the As of 1 December 1993, the library reduced time, resource and testing

high-demand components that have contained more than 2,400 reusable requirements. Cost equations and

the greatest potential utility within an design, code and document compo- data points validated by the U.S. Army

application area and provide guid- nents - representing well over 2 mil- Cost and Economic Analysis Center

ance on how to adapt them if they do lion lines of quality code. (USACEAC) were used to project the

not meet requirements. short- and long-term software reuse

Plan for benefits. - Domain Implementation. Do- Future Reuse

main implementors then create (or To maximize the benefits of reuse The estimated cost benefit for FYobtain from the ARC library) the RSCs within PEO STAMIS, a reuse infra- 1994 includes cost avoidance from

that fit the requirements specified in structure must be established to sup- opportunistic reuse and cost savings

the domain model. Domain imple- port aggressive pursuit of planned, that could be achieved through ag- mentation consists of analyzing reuse systematic reuse at each phase of the gressive planned reuse within PEO

opportunities, targeting specific RSCs SDLC. The FY-1993 reuse activities STAMIS. Actual cost avoidance and/

and their donor/client systems, and provided an opportunity to plan for or cost savings are highly dependent

providing guidance to systems devel- coordinated reuse within PEO on PEO/PM support and implemenopers in the building of reusable soft- STAMIS by identifying specific reuse tation of recommended activities.

ware. The second effort focuses on opportunities within and across PEO

investigating alternative approaches STAMIS domain boundaries, that Although reuse will not solve all

for storage, display and reuse of the could be achieved during FY-1994 SDLC problems, it is one engineering

captured domain information. Dur- and beyond. Fiscal 1993 was seen as approach that offers proven potential

ing this process, requirements ana- an opportunity to conduct the do- for increasing quality, productivity and

lysts and functional experts will gain main analyses, provide education, and programmer effectiveness while sigin-depth knowledge of multiple sys- support intra- and inter-Service coor- nificantly reducing the costs and time

tems related to their development. dination that is required to imple- associated with developing and mainment cohesive, long-term reuse plans taining software. To learn how the

Reusable Asset Acquisition. Fi- within PEO STAMIS, DA and DoD. ARC can assist you, contact the Army

nally, the ARC engineering staff works Reuse Center, USAISSDC-W, ATTN:

with the project/product managers to Recommended FY-1994 reuse ac- ASQB-IWE-R, STOP H-4, Ft. Belvoir,

certify and install donor system RSCs tivities take advantage of the infra- VA 22060-5456; (703) 285-6272; Fax

in the ARC library and to facilitate structure and other prior reuse invest- (703) 285-6377.

Program Manager 12 May-June 1994
VIRTUAL PROTOTYPING:

CONCEPT TO PRODUCTION

New DSMC Publication Is Available

omputer technology has reached a As members of the military research

level of maturity where virtual fellowship program at the Defense

prototyping can be a major Systems Management College, Colobenefit to the DoD acquisition nel Nelson P. Johnson, Ir., USA, Coloprocess. Virtual prototyping is a com- nel (Sel) Robert P. Gocke, lr., USAF,

puter-based simulation with a degree and Lieutenant Colonel (P) Albert B.

of functional realism comparable to a Garcia, USA, authored this publicaphysical prototype. It isan automated tion.

method that can maximize the benefits of integrated product teams Colonel Johnson is now Program

through the use of scientific datavisu- Manager. Night Vision and Electroalization, three-dimensional drawings optics, Fort Belvoir, Va.: Colonel (Sel)

and animated simulations. Gocke is a Professor at the Air Force ment perInstitute of Technology, Wright- sonnel may obtain this

Virtual prototyping facilitates the Patterson AFB, Ohio: and Lieutenant publication by writing or faxing a reDoD dual-use thrust because of its Colonel (P) Garcia is Project Man- quest to: DEFENSE SYST MGMT

electrical transportability, the reuse ager, Electronic Campus, Defense Sys- COLG, ATTN OS-PR, 9820 BELVOIR

of designs, and the ability to tems Management College, and has ROAD, SUITE G38, FTBELVOIRVA

reconfigure system characteristics rap- been selected for acquisition com- 22060-5565; Fax: (703) 805-3856. It

idly throughout the engineering de- mand. is available to nongovernment persign process. It has the potential for sonnel from Superintendent of Docuproviding DoD decision makers the Virtual Prototyping breaks new ments, U.S. Government Printing Ofability to select optimum weapons ground by examining this aspect of fice, Washington, DC 20402; Stock

systems based on their impact in an virtual reality applications. Govern- #008-020-01328-5 for $11.00.

electronic battlefield simulation -the

"marketplace" of the future. 2

The new Defense Systems Man- '

agement College Press publication,

Virtual Prototyping: Concept to Pro- -

duction, explains the defense envi- "

ronment and the role of virtual prototypes in the S&T program. It also

discusses the entire spectrum of synthetic environments, examines the

application of synthetic environments

in the acquisition process, and gives a

detailed account of synthetic environments applications. Specific recommendations for acquisition policy,

program management uses of virtual

prototypingandindustryadoption are From left: Colonel Nelson P. lohnson, fr., USA: Colonel (Sel) Robert P. Gocke, Ir.. IS•AF: and

included. Lieutenant Colonel (P) Albert B. Garcia, LISA.

Program Manager 13 May-June 1994
Albert Einstein portrayed by faculty member lack McGovern

YOU DON'T NEED TO BE AN EINSTEIN

TO VALUE A PMC EDUCATION.

A good education in systems manage- Whether you're military, civilian or priment should include the DSMC premier vate industry, we hope to hear from you.

20-week Program Management Course We're always looking for industry stu-

(PMC). Relatively speaking, as Einstein dents to attend, tuition free. Keep in mind,

would say, we offer the only comprehen- we often have cancellations up to the last

sive course that teaches this difficult minute for PMC and many of our short

business with Department of Defense courses. Get on our waiting list now. For

policies, rules, regulations and techniques information or a copy of the latest schedin mind. Our faculty are experts in their ule and course catalog, call the DSMC

fields with years of education and practi- Registrar at (703) 805-2227.

cal experience.

Program Manager 14 May-June 1994
NEW P

KEEPING PACE WITH CHANGE

"DSMC 95" and the Acquisition Environment

William W Bahnmaier

fwe had to use one wvord to charac- by Mrs. Colleen A. Preston, Deputy

terize the acquisition environ- Under Secretary of Defense (Acquisiment during the past several tion Reform), to separate the current

years, the word would be 20-week Program Management

"change." In the late 1980s, we saw Course (PMC) into two parts. Part I is

the streamlining effect of the Defense aimed at program management and is

Management Report (DMR) on ac- targeted "for 12. not to exceed 14,

quisition organizations. We witnessed weeks in length unless the Acquisithe start of the end of the Cold War to tion Management Functional Board

a status sometimes referred to as the approves a longer course." Part II is

"Cool War." In turn, this warming approximately four weeks in length

trend has had a major impact on ac- and is aimed at PMs; i.e., senior civilquisition by lowering defense bud- ian and military officers selected to

gets, shrinking the defense industrial major system PM and DPM positions.

base, and reducing the acquisition Together, these two courses satisfy

%vorkforce. the svrne DAW\IA requirements as

the current PMC. However, they

In another major change to acqui- should be looked upon as two sepasition, Congress in 1990 passed the rate (but integrated) courses rather

Defense Acquisition Workforce Im- than two parts of one course.

provement Act (DAWIA) which provided structure to the acquisition The effect of the first set of changes

workforce by creating the concept of has been to start causing a reduction

an acquisition corps, and establish- in student thruput requirements for

ing minimum training and education the Defense Systems Management

requirements for program executive College (DSMC). However. the secofficers (PEas), program managers ond and third sets have done the

(PMs) and deputy program managers A third area of change which has opposite. They have resulted in a sig-

(DPMs). Implementation directives gained momentum in late 1993 and nificant increase in student thruput

and manuals followed, such as DoD early 1994 is the Acquisition Reform requirements as the Department of

5000.52-M, "Career Development Initiative of Secretary of Defense Wil- Defense (DoD) implements a leaner.

Program For Acquisition Personnel." liam I. Perry. Along with concepts but more professional workforce.

These provided detailed training re- such as simplifying the solicitation

quirements for the acquisition process, raising the threshold of the Because of the uncertainty associworkforce. simplified acquisition threshold to ated with these events. Brig Gen (Sel)

$100.000, and use of commercial Claude M. Bolton, Ir.. USAF, DSMC

products and services, this initiative Commandant, chartered Project

places great emphasis on a highly "DSMC 95" in August 1993. to examMr. Bahnmaier is the Project Man- trained and effective acquisition ine the impact of the environment on

ager of "DSMC 95" and Professor of workforce. how the College provides its educaSystems Acquisition Management, tional. research, consulting and inforPrinciples of Program Management One of the significant fallouts from mation products. The thrust of the

Department, at the College. this initiative has been the decision charter is to ensure the College operProgram Manager 15 May-June 1994
ates more efficiently as resources are FIGURE 1. DSMC 95 Activities

reduced in the 1990s.MLtMhe Charter

The following tasks were defined ***4----000e CORECOU RSES

in the charter. COMPETENCY CRES COUSES

- Identify student thruput require- F

ments as the defense establishment L CURRICULUM

downsizes. CORE DEVELOPMENT

- Obtain Levels 1, 11 and III work- THRUPUT ANALYSIS

force competencies from the career FINAL

path functional boards. - nef"REPORT

- Define core courses that DSMC ORGANIZATION &

should sponsor. This includes the ASSESSMENT PROCESS STAFFING ANALYSIS

courses horizontally in each career DEVELOPMENT

field, and vertically across or corn- NJ

mon to several career fields. AUGUST 1993 NOW JULY 1994

- Determine the optimum cur- project, and form a plan with project as in a work-breakdown structure.

riculum design and presentation me- activities. Of course, no DoD project For example, one team is responsible

diums that best support the defined has ever been started without a logo, for determining the optimum organicore courses. so the one shown at the beginning of zation and staffing for academic year

this article was agreed upon. How- 1995 and the near-term following years.

- After synthesizing data provided ever, the project manager insisted we

by the environment, core course would not have coffee cups imprinted The project does not have full-time

analysis, and curriculum design with the logo! personnel, but is supported from the

teams, provide recommendations for DSMC-matrixed, functional faculty

adjustments in the DSMC organiza- To keep things simple, the basic and staff, who continue to perform

tion and staffing to best meet future charter would contain, among other their primary education, research,

customer educational needs. guidance, tabs depicting the project consulting and information roles while

organization and initial plan, and the working on the project. This organiza-

-- Develop processes for continu- tabs would be updated, as needed, tional approach has some obvious

ous updating of competencies in co- during the project execution. As a drawbacks; e.g., faculty members not

ordination with the functional boards. project management scheduling tool, always available for DSMC 95 activithe project team selected a commer- ties. However, its strong point is that

- Develop processes for institu- cially available software package it keeps team members close to the

tionalizing customer assessments; i.e., based on the Program Evaluation educational process, reinforcing their

how well are we meeting customer Review Technique (PERT). This pack- judgment and ability to make sound

needs? age keeps the baseline schedule vis- recommendations.

ible, but allows updates to the schedEarly Actlvities ule being executed. At the press of a The project organization as of 15

One of the first activities of any computer key, it also translates the April involves about 100 faculty and

project is to determine the product of PERT network chart into an easy-to- staff in various subprojects. Because

the project and, working backwards, read milestone chart. Project person- this is one out of four people on camlay out a viable program structure. In nel also came up with a top level pus, project momentum and synerthis case, the product is a report to the activities chart (Figure 1) referred to gism has been building as the project

Commandant, giving options for his as "animated PERT." progresses.

decision regarding the taskings shown

,1bove. The project was organized by inte- Execution to Date

grated product teams (IPTs). Each The project manager's report for

The next activity was to define the IPT was assigned a specific product the Commandant is scheduled for

acquisition environment, develop an for the overall project. These products August 1994. To date, the following

organization to accomplish the lined up with the taskings above, much activities have been accomplished:

Program Manager 16 Moy-June 1994
FIGURE 2.The Education Continuum and 201. Approaches for PMT 301A

and 301B also were agreed upon. The

concepts for all four integrated DSMC

PM career field courses were briefed Ill and approved by the Acquisition

L Management (AM) Functional Board.

E \The PMT 101 is targeted for nine vice

VII the current five days, PMT 201 is

E targeted for four weeks which is the

) same as the current course. The reS vised PMT 101 and 201 are also

planned to fulfill fundamental and

intermediate course requirements,

respectively, of several other career

YEARS OF SERVICE fields.

- Some basic decisions made to

-Career path competencies have Intermediate Systems Acquisition date are:

been identified and scrubbed against Course/PMT 201; Program Managethe material in DSMC courses. Com- ment Course A (PMC A)/PMT 301A; - Eight hundred forty students

mon core competencies which cross and Program Management Course B per year in PMT 301A (at least in FY

career paths have been provided by (PMC B)/PMT 301B. 1995)

the Defense Acquisition University

(DAU) Core Curriculum Working The acronym PMT is a DAU desig- - Two PMT 301A offerings per

Group. These competencies have been nation shown in the DAU course cata- year in the beginning

scrubbed against courses that are in- log. Based on late-breaking informatended to be mandatory for several tion, the revised PMT 101 and 201 - Nominal 30 students per seccareer fields. The competencies are will be redesignated as Acquisition tion in all courses (some exceptions,

the most significant part of the "re- (ACQ) 101 and 201, respectively, be- such as PMT 301B)

quirement"; i.e., what we teach. cause they will be DAU Core courses;

i.e., mandatory for several career - The two DAU core courses (PMT

- Based on the competency scrub, fields. Also, in the future, PMC A will 101, PMT 201) will be prerequisites

deficiencies have been identified and be known as the Advanced Program for PMT 301A

are being filled as curricula is devel- Management Course (APMC) or PMT

oped. 302; and PMC B will be known as the - Two out of 14 sections will pilot

Executive Program Manager's Course PMT 301A in PMC 95-1

- The horizontal (within career (EPMC), or PMT 303.

fields) and vertical (across career - Upgraded PMT 101 starts pilot

fields) courses that DSMC either - A thruput model has been de- in late August 1994; upgraded PMT

teaches, or will teach, have been iden- veloped by the Office of the President, 201 starts pilot in October 1994; PMT

tified in the FY 1995 academic calen- DAU. The model needs further refine- 301A starts pilot in March 1995; and

dar. An example of the integrated PM ment, but for now it indicates that the PMT 301B starts pilot in July 1994.

career field courses and their corre- current DAWIA "bow wave" may start

sponding workforce levels is shown in receding about 1996. Thruput is one - As part of the development of

Figure 2. The courses shown in the half of the "requirement" (the other the revised PMT 101 and 201 courses,

figure are sometimes referred to as the being competencies), and it will im- DSMC is conducting close liaison with

DSMC core courses since they repre- pact heavily on determining future other DAU Consortium schools which

sent the core business/products of workload and staffing levels, will be teaching those courses, in orDSMC. For the first time at DSMC, der to have the best available matethese four courses are being designed - In February, work began on rial and teaching methods for each

as integrated courses where each curricula design. Based on the com- course. In fact, in some cases, other

builds on the material of the course petencies, lesson topicsAesson blocks Consortium schools are responsible

before it. Reading from left to right, were developed along with lesson for specific lesson development. For

the courses are: Fundamentals of Sys- objectives, desired learning outcomes courses sponsored by other Consortern Acquisition (FSAM)/Program (DLOs), Lesson Assignment Sheets tium schools, but taught by DSMC,

Management Training (PMT) 101; (LASs) and schedules for PMT 101 this process works in reverse.

Program Manager 17 May-June 1994
- Some initial work has been done time around mid-I 9%5. The rationale given to a group of 10-15 prospective

on designing and staffing an organi- is that there will be enough turmoil PMs in July-August 1994. The PMT

zation to support DSMC education, without trying to implement organi- 301A will not be piloted until Marchconsulting, research and information zational changes along with new/re- lune 1995.

products. But that work is low priority vised courses.

as DSMC works on developing the The DSMC is coping with change

products - particularly educational The Future by overhauling the education, conproducts. The key here is that the The hard work is ahead. During sulting, research and info rmation staeducational products will be the key the next 10 months, the faculty must tus quo. The DSMC 95 model shown

driver in any organizational and staff- write detailed lesson plans and lesson in the deployment flow chart in Figing concept. In any event, the DSMC assignment material, and then the ure 3, captures that process. It can be

organization and staffing will change teaching faculty must be brought up repeated in the future as we keep

as little as possible during the transi- to speed on the new material. Some pace with change.

tion to the new courses. Changes, if courses will be implemented sooner

required, will follow the transition to than the others. For example, the first

the new products - probably some- pilot offering of PMT 301 B will be

FIGURE 3. DSMC 95 Activities

Customer Environment Core Curriculum Organization PM DSMC 95 Assessment Team Concept eamm Team

Team Conept Team Team

Developy

SConduct Cornetenc Analysis (Aug 93-Feb 94)

OgniaiConduct Throughputt

Analysis (Aug 93- Conduct

Jan 94) (DSMC

AeoCrCeore"

De 4)Analysis

Progam Mnagr 18MayJune199

SAssessment m(Aug-Oct 93)

"• m Design

Jun 94)DSMC &

•DAU Core"

Courses

=,= (Dec 93-

Conduct ( Organization L• & Staffing

Analysis . • (Jan-Jun 94)

S~~Prepare Final Report-'

(Jul194)

"DSMC &

DAU Core"

Curricula

(Mar-Sep 94)

Program Manager 18 May-June 1994
INTERNATIONAL DEFENSE

EDUCATIONAL ARRANGEMENT

Passing a Major Milestone

centl', the International Defense be updated on the international acEducational Arrangement (IDEA) quisition policies of the participating

passed a major milestone in nations, and to work together with the

maturity when it held its fifth, allies on relevant international acqui- ,EEN•

successful seminar in Europe. sition problems in an academic environment. The primary customers are

The IDEA is an arrangement among the international acquisition course ,EFA

equivalent acquisition education in- directors and their institutions, and

stitutions in the United States (repre- the seminar participants and their

sented by the Defense Systems Man- sponsoring organizations. Copies of

agement College (DSMC)). the United the annual proceedings are provided SAM

Kingdom. Germany and France. The to the Office of the Secretary of Depurpose of IDEA is to improve the fense and Services' international ac- The IDE

among the CquiVE'1nt defense acquisition edueconomy, efficiency and effectiveness quisition offices. New products are cational institutions in the United Stales, the

of international training and educa- planned. An international acquisition United Kingdom, Germany' and F'rance.

tion for acquisition/procurement man- guidebook will be produced in 1994

agement by active cooperation among using DSMC research in international agement College. In 199(, the seminational defense educational institu- comparative acquisition practices as nar will return to Europe. as the Royal

tions with similar goals. the foundation. The European com- Military College of Science in the

parisons will become an annual part United Kingdom will be the host.

IDEA Beginnings of the IDEA Seminar, with national

The IDEA formed in November updates as a new product which will Who May Attend

1989 when the administrative arrange- have broad appeal to international The seminars are by invitation to

ment was signed by the DSMC Coin- program offices and oversight staff. all European Offices of Defense Comandant, the Commandant of the operation, certain Defense Attaches.

Royal Military of Science in the United Past, Present, Future Army Standardization Groups, Air

Kingdom, and the President of the Seminars Force R&D Liaison Offices, the Navv

Federal Academy of Defence Admin- Seminars have been held in the European Office of Naval Research,

istration and Technology in Germany. European capitals of London, Bonn, as well as the U.S. Mission to NATO,

The French accession letter was signed Brussels and Paris. In 1993, the IDEA SHAPE Technical Center and the U.S.

in lulv 1991 by their equivalent of the Board of Directors decided to hold the European Command. This is the only

Under Secretary of Defense (Acquisi- annual seminar at the participating opportunity for all U.S. representation and Technology). They are repre- defense educational institutions. tives to meet with their European

sented by the Directeur, Centre Therefore, the fifth seminar was held counterparts in an academic setting.

d'Enseignement et de Formation at the Federal Academy of Defence The IDEA seminars bring great notod'Arcueil (CEFA) in Paris. Administration and Technology, riety and prestige to DSMC.

Mannheim, Germany. In iuly 1994,

IDEA Customers the seminar w\,ill be held at the Centre IDEA Inquiries

The principal IDEA product is the d'Enseignement et de Formation For more information on IDEA,

annual seminar and proceedings. At d'Arcueil (CEFA), Paris. France. In contact Professor Richard Kwatnoski,

this time, the U.S. acquisition person- luly 1995, for the first time, the IDEA Director of International Courses,

nel in Europe (and Europeans. as seminar will be held in the United DSMC: (703) 805-3003 or Fax (703)

wvell) have the unique opportunity to States at the Defense Systems Man- 805-3187.

Program Manager 19 May-June 1994
LETTER TO THE EDITOR

(Subject: "Navy Strategic Systems Programs Office," Ibrahim A. Ashie, pp. 33-35,

January-February 1994)

As a member of the original core alumni group at kings on this program and given full authority to do what

Westinghouse during the Chrysler lupiter liquid fueled was necessary to make it success. There were very few

FBM and then the Lockheed/Aerojet Polaris FBM pro- bureaucrats, administrators, so-called "systems engigrams, I found the article interesting. However, it lacked neers", and MBAs. Acquisition regulations were few and

understanding of what made this program a success and sole source contracts many. Contractor and government

thoroughness in researching other historical sources. Mr. teams were small in number of people and provided a

Ashie is pursuing the right track, but seems to have close working environment and unique esprit de corps.

overlooked several factors which may prevent "re-inventing" the success of the original government, military, The government and contractors literally ate and slept

contractor, FFRDC, and academic Polaris team that together on this program. Ethics and professionalism

evolved between 1955 and 1962. Also, the author should were very high and mutual respect the rule. There were

examine how this Navy office changed from the Jupiter to few violations of these unwritten rules and those that did

solid propellant program. National security and other were banished. There was a zero tolerance level for lack

factors mitigated the urgency of the program. There can be of performance and incompetence. The quality of this

doubt that this program was one of the most successful system and program is a result of a team of talented,

weapon systems developed and deployed in the US in a motivated, and dedicated people, not procedures, organivery short time. Its daily internal story is not well known zation charts, politically correct terms, and other nonnor documented comprehensively, essential mechanics.

Those of us who were at the underwater tests off San It is doubtful that lightning will strike twice in the same

Clemente, the first test launches, in the shipyards, watch- place. The members of the Polaris Team are vanishing

ing the hulls of the SBN 598 and 599 being cut in half to and re-inventing it cannot be easily be accomplished

make way for missile compartment, or sweating in non-air without its most critical ingredient, the people who made

conditioned buildings in Washington, DC or at sites, it all happen.

remember that the reason for success was the extraordinary people that made up this team. Organization charts Lawrence 1. Reeves

prepared after the fact do not tell the story of people who President

were the reason that the boxes existed. Engineers were Systems Research Associates

Los Angeles, California

DSMC Commandant, Brig Gen

(Sel) Claude M. Bolton, Jr.,

USAF, presents a framed likeness

to Acting Under Secretary of Defense (Acquisition and Technology) R. Noel Longuemare, as it

appeared on the cover of the

March-April issue of Program

Manager. DSMC faculty and

staff attending the presentation

were (from left) Wilbur D. Jones,

Jr., Associate Dean of Information and Director, DSMC Press;

Esther M. Farria, Managing Editor, Program Manager; Paula L.

Croisetiere, Typography and Design, Visual Arts Department;

and Gregory T. Caruth, Director,

Visual Arts Department.

Program Manager 20 May-June 1994
DEPSECDEF AUTHORIZES

USING INTERNATIONAL

QUALITY STANDARDS

ISO 9000 Adopted for

New Programs Contracts

John P. McGovern

Deputy Secretary of Defense Joining the DEPSECDEF in advo-

(DEPSECDEF) John M.Deutch. cating use of ISO 9000 for DoD acquiin his letter of February 14, 1994. sition are Lt Gen lames A. Fain, Jr.,

on "Use of Commercial Quality USAF, Commander, Aeronautical SvsSystem Standards in the Department tems Center. and VADM XV.C. Bowves,

of Defense (DoD)." established the goa ly t a time USN, Commander. Naval Air Svsuse of the ISO 9000 international tems Command. The National Aeroquality standards. "Program offices whe n th wold i nautical and Space Administration

are authorized to use ANSI/ASQC Q90 (NASA) also has stated they plan to

and the ISO 9000 series standards in adopt the international quality stancontracts for new programs." lISO is dards.

not an acronym: the Greek prefix iso ][r

means equal or identical.] pro' uc qai a The Foundation

Three and a half years ago, I atDeutch continued: "They may also tended the European Organization

allow these standards for follow-on for Quality (EOO) 36th Annual Conefforts for existing programs

instead of MIL-Q-9858A, Quality FIGURE 1. ISO 9000 CERTIFICATION

Program Requirements and MIL-I- World Share

45208A, Inspection System Requirements. Application of ISO 9000, txS' Percentage

ASQC Q90 series standards on cur- 70

rent contracts may be considered on a 60

case-by-case basis." He further stated,

"Third party certification or registra- 50

tion of a supplier's quality program 40 .......

shall not be required nor is it a substi- V

tute for Government quality surveil- 30

lance, at the present time." 20

10

Mr. McGover is a Professor of En- 0 U.K. Rest of Aust. & N. Z. N. Amer. Far East Others

gineering Management in the Manu- Europe

facturing Management Department, Countries/Areas

Defense Systems Management College. Taken trom the February 1994 ISO 9000 news

Program Manager 21 May-June 1994
ference in Dublin, Ireland. The major 9001, 9002 and 9)003 are quality svstheme was training and certification tern models. The series are:

of quality engineers, quality auditors

and quality lead-auditors. It was this 1. ISO L00X.-I. Quality management

group of specialists who were to pre- •on[r[, e m and quality-assurance standard -

pare Europe for 1992 and the Euro- guidelines for selection and use.

pean Community (EC). The EOQ pri- t 3r

orities were as follows: 2. ISO 9001. Model for quality asHamoiznathvet file surance in design, development, pro- - Harmonizing the 19 different duction, installation and servicing.

quality standards of the EC countries

into the single ISO 9000 series of 3. ISO 9002. Model for quality asquality standards. asurance in production, installation

and servicing. - Educating and training quality Ih mi 4,i,000

specialists (quality engineers and au- 4. ISO 9003. Model for quality asditors were first priority). tles of surance in final inspection and test.

- Certifying* industry and busi- 5. ISO 9004-1. Quality management

ness quality systems to ISO 9000. t ]s t p 1 and quality system-elements guide- lines.

Moving quickly since the EOQ

Conference, more than 55 countries As can be seen by the title, ISO

have adopted the international qual- 9001 has the broadest coverage of the

ity standards and more than 45,000 five standards. It addresses manage- certificates of registration have been I I ment responsibility regarding quality

issued to companies throughout the policy, assignment of management

world. Figure 1 illustrates the global and authority, and resources for qualdistribution of registrations. ity. It also mandates a quality system

that comprises quality policy, quality The ISO 9000 series of standards tion Board (RAB) that grants accredi- manual and procedures. The ISO 9001

are designed to be contractual obliga- tation to conduct third-party certifi- calls for contract review, design retions between customers and suppli- cations. The United States has ap- view, documentation and control,

ers. The suppliers are obligated to proximately 27 accredited bodies. subcontractor evaluation, inspection

conduct internal or first-party audits. and test, calibration and internal auSecond-party audits are conducted The International Standards were dits. Along with some elements not

by customers, or their representatives, published in 1987 and the U.S. ver- mentioned here, this document eswith the supplier. The third-party au- sion, which is technically equivalent, tablishes the necessary activities and

dit is one conducted by an organiza- is ANSI/ASQC Q90. The standards the interactions for an acceptable tion that has been accredited by a development is interesting, as MIL- quality assurance organization.

worldwide recognized body to audit Q-9858A was quite influential in their

for compliance to ISO 9000 interna- development. This military specifica- What's Ahead?

tional quality standards. If the sup- tion has been used since 1959 to Although the prime contractual

plier complies, with or without addi- define the quality system that DoD vehicle DoD has used for more than

tional corrective actions, registration contractors should formulate. The 35 years, MIL-Q-9858A has many of

is granted. In this country, the Ameri- MIL-Q-9858A was used as a model the elements of the ISO 9000 Internacan Society for Quality Control for the British Quality Standard BSI tional Quality Standards - specifi-

(ASQC) is the Registration Accredita- 5750; in turn, BSI 5750 was a guide cally, ISO 9001 - it has not been

for ISO 9000 international quality used effectively. Most often, it is inMore standards. terpreted as a military specification * oeappropriately, this should say that requires contractor and govern-

"Registering." When either term is used The 1entinspcons and p odsrap

it should be prefaced by "Quality Sys- The ISO 9000 refers to a series of ment inspections and periodic scrap

tem." For compliance with ISO 9000, five international quality standards and rework reports, and not a docuthis process involves periodic audits published by the International Orga- ment that requires a contractor to

of a supplier's quality system by a nization for Standardization. Although implement an effective, quality-as- third party - a registrar. ISO 9000-1 and 9004 offer guidance, surance system.

Program Manager 22 May-June 1994
The ISO 9000 is being recognized DoD Goes Commercial and

globally at a time when the world is International

attuned to the competitive value of The other DoD challenge is the

product quality and services. This fact. major thrust to use Non-Developmenalong with the TQM focus by DoD for tal Items (NDls) for our weapon svsthe last five years. will result in a tems. In his remarks to the National

truer, more complete interpretation of 4 a Contract Management Association.

the ISO Quality Standards. This inter- November 18, 1~)93, Dr. Williarn 1.

pretation, therefore, will foster con- Perry, now Secretary of Defense. mentractor implementation of all elements tioned the United States cannot afof a quality system with mandated ford two industrial bases - one for

internal audits and second-party au- defense and the other for commercial.

dit by the customer (the government). oHe also pointed out that advances in

technology and productivity in the

The DoD now has an opportunity past 20 years in the commercial secto streamline further the quality-as- tor are too important to ignore.

surance activities with their contractors. With Defense Contracting Man- Dr. Perry has been "beating the

agement Command's (DCMC's) drum" for months, recommending

emphasis on cooperation, process DoD use of commercial specifications

management, and utilization of con- twherever possible. The 1SO 9000 intractor quality data, ISO 9000 will be ternational quality standard used for

a powerful tool for furtherance of these DoD acquisition is a major step in this

concepts. If DCMC continues to tran- direction.

sition to this mode, the following ac- In January 1994, a set of guidelines

tions must be taken at all levels: for implementing ISO 9000, "Guid- Recently, I have seen three RFPs

ance on the Application of ISO9000/ for electronic equipment where mili-

- Training on ISO International ASQC Q90 Series Quality Systems tary standards and specifications were

Quality Standards and associated Standards." was published in MIL- listed alon'.', with a statement allowing

documents HDBK-9000, NASA-HDBK-9000. for the use of commercial off-the-shelf

Without proper education and train- components, as long as performance

-Training in conducting quality ing on the concepts and philosophies requirements are met. The electronassurance (QA) system audits of the elements and responsibilities ics industry is one where commercial

indicated in ISO 9000 quality system, technology and reliability are condu-

- Recognizing that a contractor it is possible that many program man- cive for many military applications.

with a compliant ISO Quality System agers and contract administrators will Some commercial plastic encapsugoes a long way toward ensuring prod- utilize all the supplements afforded in lated circuits exhibit reliability meauct quality and service this guidance document and we will sures equal to some military hermetirevert to "the government must in- cally-sealed circuits.

- Future recognition of a spect" mentality practiced with MILsupplier's third-party registration, if Q-9858A. Using commercial and internaconducted by an accredited body. tional standards and specifications to

Certainly, some products and procure some elements of our weapon

This is not to say that a compliant programs may require military speci- systems is the direction of the future.

quality systems guarantees a good fication supplements; but, there are Again, this must be done with knowlproduct, only that this is a minimum many more programs where a compli- edge and with the user in mind. Doing

requirement for ensuring product ant QA system will ensure product away with the 16-page specification

quality. We know the other elements quality, for a ballpoint pen is long overdue.

of quality in design and manufactur- But, let us not move so quickly that

ing must be practiced to achieve world- The real challenge is to distinguish we eliminate some military specificaclass quality, between programs that can be man- tions and standards that have beaged by assessment of the ISO 9000 come industry standards. Let us conIf the steps above are implemented, quality system and those that require tinue to deal more with quality systems

DCMC will become primarily a QA additional military specifications and and cost-effective commercial prodsystem assessment agency not an in- oversight. The Dod must be able to ucts whenever performance and relispection agency. know the difference. ability is not compromised.

Program Manager 23 May-June 1994
S I

WHY DoD SHOULD MOVE

TOWARD COMMERCIAL

PRACTICES

A Disparate View

Dr. Walter B. LaBerge

o t people miss the central point g of why Department of Defense •

(DoD) acquisition must move -

toward a more commercial-like 0

environment. Our present focus is to •.

achieve those one-time, 10-15 per- 2

cent savings which might accrue if we

can achieve legislative reform (the o

800 Panel Recommendations) allowing DoD to design and build hard- .

ware to commercial standards. How- a

E evei, this is not the best of reasons to 0

move toward commercial standards.

What we really should focus on is buying into the commercial competitive

process where continuous aggressive 2

competition drives down initial prod- .6

uct sales prices and provides stimulus f

for continued product improvement and 0

cost-performance benefit. .

The DoD has an opportunity to get ."

in on the same environment that •

brought the prices of cellular phones

down and their performance up. We _ ___________.___,_....

in DoD need to benefit from the way

of conducting business that has improved CAMCORDER performance

while halving their price. We need to

use the system that in just a few years

has made home computers afford- The new constrained fiscal envi- be simultaneously introduced into

aHe and indispensable. ronment in which DoD finds itself will only portions of the force as opposed

require new ways of acquiring equip- to our current intent to fully outfit all

ment. Most will delay or defer capa- combat elements. This direction, plus Dr. LaBerge is a Visiting Professor bilities the Services would prefer to an added emphasis on broad retrofit

at the University of Texas at Austin, acquire more quickly. Decisions will of forces vice new platform procureand the Defense Systems Management have to be made as to whether a ment, will completely change the naCollege. number of different capabilities should ture of DoD procurement.

Program Manager 24 May-June 1994
Though it offers difficult challenges, achieve a stranglehold on our military Key Issue

this new environment also may offer marketplace with low-cost, high-per- In my view, the real reason DoD

new opportunities. In changing from formance products - like the Japa- should move to commercial standards

a needed rapid response to Soviet nese did to us in the consumer elec- is to be better able to permit continucapabilities not influenced by budget tronics field and we have done recently ing commercial-like production comconstraints to a long-term, budget- to strike back in the semiconductor petition throughout the lifetime of its

constrained modernization programn microprocessor arena. military products. The threat of conwe may be mimicking the business tinuing commercial price competition

world of U.S. high-technology indus- These consumer product advances is what drives commercial suppliers

try more closely than ever. The latent have come not at the expense of the to use their best people on design for

advantage in adopting a strategy more supplier industries; rather, they have low cost in the first place, and then to

closely to the commercial world is expanded and strengthened them. continue putting as first priority furbeing better able to adopt the busi- Continuing competition in the mar- ther reduction of cost and increased

ness methods which nave so strik- ketplace is what has made it happen, performance downstream. The same

ingly reduced their product cost and not bending the rules on how to build should be a DoD objective.

increased their product capability, things. If we want to build a strong

DoD industrial base, we should emu- Suppliers in commercial industry

late competitive industry practice. know they cannot sit on their hands

once they introduce a product. They

The real DoD issue, in my opinion, know if they are successful in introshould be where procurements are ducing a new, "hot" sales item, it will

,...W t for c required to be more like the forms of be reengineered quickly by their corncompetition seen in the commercial petition, which is anxious to take over

Sunolv. =W our marketplace, rather than limited to that market. We should facilitate that

promoting a DoD "specification-free continuous commercial-like compe-

-: - UII I• •1t o ' environment" to what will be, in an tition.

bhUW--M"--tm" of Maylo•s era of reduced new systems, a lessand-less competitive industry. However, as things stand, that is

fl mo t.7 not how we motivate our contractors.

""hý a" This different type of focus has not The best of our contractor designers •Wfl l pI k| i' been discussed greatly. Perhaps this - the ones responsible for cost/

- is because such a marketplace may performance optimization - having tm. a ln"not . be to the advantage of those who once helped their companies win a

S d d Igive advice on the defense industrial contract, now shift immediately to

base - namely, those who are in it new competitions yet to be won.

now and might benefit from a change. One can hardly blame these contrachxihn |A mpl .The industry now possessed by DoD tors; that is where their greatest ........ ...... .. admittedly has performed well in the rewards lie.

64••,od It, past as seen by the results of Desert

Storm. However, it has been good at Conversely, government efforts to

Sl ol"• what we have asked it to do during the. support commercial practice should

Seca-" .past decades - because of Soviet not be oriented principally toward

pressure, to emphasize performance helping selected contractors shave

I NY IS - " kI and not necessarily economy. As a small percentages of cost from prod- Sr. result, being scrupulously cost con- ucts no longer subject to continuing

iWit' St• c oder•. scious is not something we would, in competition. That is not where the

"our wildest dreams, attribute to our biggest savings are to be found.

current defense industry.

It is not the 10-15 percent cost- If we are to break our pick on a

performance improvement from speci- In the following, I hope to develop tough rock, it ought to be a rock that

fication changes that we should seek. the rationale that there should be a has real gold in it.

Rather, our objective should be to get substantial shift in emphasis in what

the larger incremental cost-perfor- we are trying to accomplish by acqul- Raison d'Etre

mance improvements typical of the sition reform, one skewed more Numbers taken from an Office of

competitive, high-technology, com- heavily toward Increased competition Technology Assessment report in promercial world. We should strive to at all levels. cess of publication show the differProgram Manager 25 May-June 1994
ences. With their permission, I in- that claim "stick" through the years maintain, for budget reasons, a force

clude them in Figure I. with department store customers, that can ride out all foreseeable criMaytag has tremendous incentive to ses. Therefore, we will be obliged to

Today, almost everyone quibbles invest its profits and use its

over whe;!ier savings by specification best people to improve its

and other relief can be as high as 10 or product continuously. There 2

15 percent. However, the bombshell is no equivalent "life-orof momentous proportions contained death" reason for DoD proin the referenced chart is that the gram managers or their milidifferences in costs for equivalent tary contractors to make the /

military and commercial items actu- same consequential effort.

ally purchased in the marketplace can Neither is the gain to do so

range from 500-900 percent. Unusual high, nor is the peril of not 0

about all this is that it isn't very sur- doing it consequential. That

prising to anyone who sees the numbers. being the case, any contractor, military or commercial,

Clearly, not all cost differences are can be expected to put his • due to competition. Some differences best product design talent into

are connected with different volumes; completely different product

some, perhaps, to lesser environmen- development because that is CL

tal requirements, although there is a where their money would lie.

bulk of Navy experience that shows

commercial equipment can be repack- Why Address this Issue?

aged easily to work in the military The issue of affordable

environment of ships and aircraft. military products is more important today than ever beFurther, I believe this concept of fore. Surprisingly, it may be

continuing competition in military easier to implement now than A.

goods can be achieved straightfor- earlier. These condiwardly and, in fact, is aided by our tions are true because:

current budget woes. Also, I suspect

these ideas will experience far less - Force structure

difficulty than will an assault on the demands, driven by

eaches of 800 Panel Acquisition Re- multiple war scenarios

form. Subsequent paragraphs illus- and smaller budgets,

trate how to accomplish the proposed inevitably are going to

continuing competition. Lastly, along make acquisition acwith the cost reduction continued counts smaller and

competition brings, can come a level smaller, thus emphaof reliability and performance better- sizing even more the

ment not otherwise achievable, need for reduced product costs.

The Environment

We Wish to Create - Products introduced in the next design for rapid increase equipage of

In my mind, this proposal is the decade will be used far longer than our force, not knowing when it will be

"Maytag repairman" argument in mili- previously. Product improvement in needed. To meet that need, our only

tary clothing. In its simplest form, we the long term will be the order of the option appears to be an active warm

wish to force ourselves and our sup- decade rather than new platform in- base from which to accelerate.

pliers into the equivalent of the Maytag troduction. It is plausible to believe

environment. Maytag sells its prod- building factory improvements is more - That, in turn, will drive us inucts by convincing the public that economical (even without arguments evitably to build our new products at

they have a competitively priced prod- based on competition) than having a low rate so we can keep our lines

uct; its competitive performance im- them installed in the field by retrofit. hot. We cannot allow the kinds of

proves constantly; and its products problems we have now (Abrams tank

never need repair because reliability - Mobilization potential becomes line, which will soon be dead) where

is their greatest concern. To make more important, because we will not many of our material items now out of

Program Manager 26 May-June 1994
production have start-up times not FIGURE 1. MIL-SPEC vs. Commercial Comparisons

within the envelope of anticipated (for similar quantities)

crisis warning times. These longer

build-out times will be permitted by MIL-SPEC to Commerical Ratio

the threat of the next decade; wvhereas, IT T A Tim RELIABILITY SIZE

the threat we had formerly would not

Critical to remember is that times have Sony Color Monitor 8X - Similar Same

changed. In the old days of Soviet Data Processor (classified) 9X 3X Worse 1/6

confrontation when they introduced Guardrail V/IV 2X 2X Similar Same

a new capability, we needed immedi- Secure Phone 5X 4.5X - 6X

STU 11 /STU III

S STU III 4X 1.5X Similar Larger

i Computer PDP 11/44 8X - Worse(11X) 1/8

SRemote Sensor 4.5X - Similar 1/4

• Inertial Navigator 1.7X - Worse(5X) 0

06 Carousel/ASN 132

SSource: U.S. Department of Defense, 1987.

ate, full response. Now, the threats ment that is typically going on in the

are of lesser numbers and probably commercial marketplace every day.

can be satisfied by a more drawn-out With that improved performance, we

modernization program. also would need the decreased costs

seen in any evolving commercial mar-

- Through this more drawn-out ketplace. The best examples of what

procurement cycle we need to main- we wish for the military is what is

tain technological superiority, not al- going on today in the high-technology

lowing a protracted period of con- commercial electronics businesses.

stant capability product. In DoD, we Television, CD, computer, long-haul

need the same incremental improve- communications and cellular car

D. phone businesses all give spectacularly better value as each year goes

09= by. To give added hope that we can

o gain for the military what the civilian

buyer already has, those products just

o discussed are almost exact overlays

of what the military will buy in the

"o next decade.

weFurthermore, I see no reason why

we cannot give the military buyer the

same bargains we have available in

our home electronics products, as long

as we can achieve continuing production competition throughout the lifetime of military production runs.

E.

A. Soldier holding a Stinger scans the horizon. Technique for Achieving

B&C. A sequence of photographs showing a GBU-15 bomb on target and on impact during a Continuous

weapons demonstration, December 12, 1978, at White Sands Missile Range, New Mexico. (Commercial-like)

D. A pair of U.S. Marines accurately determine their location during desert training exercises

using the Position Location Reporting System (PLRS). The Hughes system allows Marines in Competition

the field to communicate with commanders by using a digital manpack radio that provides To achieve the continuous compelocation, navigation and short messages through a hand-held readout device. tition typical of the commercial marE. Air-to-air view of an F/A- 18 Hornet strike fighter aircraft from Marine Fighter/Attack tpic al ohercerci mar

Squadron 314 (VMFA-314) firing an AIM-9 Sidewinder air-to-air missile during an opera- ketplace, several characteristics of that

tional test. marketplace must be satisfied.

Program Manager 27 May-June 1994
1. Reasonably long procurement belong to the government and that same reason - the desire to prevent

cycles for our products, in order to these designs can be revealed to pro- competitor market entry at anytime in

make plausible competitor investment spective bidders at the time of the extended product production

in reengineering and tooling for late recompetition. (The way many comr- cycle. The whole idea is for the govmarket entry. (Predicted by this ar- mercial subcontractors now work. ernment to prevent noncompetitive

ticle to be the way the military pro- Equivalent to the common commer- equipment being built anytime durcurement will have to respond, for cial practice of buying buying a com- ing the production span of its proreasons other than cost, to the new petitors product and seeing what's in grams. From examining commercial

budget environment.) it and how it works.) Now practiced high-technology parallels, I believe

by the government in second-source that is where the biggest potential for

2. Freedom to change detailed de- procurements. savings exists for the buyer.

sign and to change any parts as long

as the completed product can demon- 6. Further, agreement that nothing A program to easily achieve these

strate form-fit and function compli- unspecified as company proprietary incentives is proposed in this article.

ance with the initial design, and pass at the time of original contract award Work to relieve government procurecompanion environmental and lot can be claimed later as company ment restrictions as proposed by the

sample tests. (An existence theorem proprietary without agreement by the 800 Panel should also be pressed

has proved that such a process can government. (A requirement not with vigor, since not all DoD products

work. We already allow in-produc- dissimilar from standard, long-ac- can meet the criteria for continuing

tion changes for the advantage of the cepted military second-sourcing pro- competition as outlined above. Howgovernment, subject to similar quali- cedures, and now frequently used in ever, our acquisition community must

fying tests. Also, on a complete prod- second- and third-tier contracts by understand it is continuing commeruct basis, it was already tested suc- primes.) cial-like competition, not specificacessfully by the Army in its Gulf War tion change, that holds the greatest

GPS receiver procurement.) 7. Products intended for long pro- opportunity for significant DoD savduction runs (e.g., at least six years or ings.

3. Willingness to accept vendors ac- more) during the competitive produccounting systems and plant proce- tion period subsequent to initial pro- In sum, as a way to look at things,

dures. (Again, already successfully duction, will be considered to meet it is our Maytag problem we wish to

tested by the GPS experiment. Also the statute requirements of Non-De- solve. Would we rather have the reprobably easily accepted as long as velopmental Item (NDI) legislation. pairman come out (at $XX per hour

these competitions include several (What isproposed already may be an and charge retail parts costs) or would

commercial contestants and allowable interpretation of current we rather have the improvements built

recompetitions are frequent.) statutes, though probably this appli- in at the factory at a fraction of the

cation will need congressional affir- cost and, when we can buy a new one,

4. Willingness to no longer depend mation. Such affirmation may be give the old one to the kids (in the

on military maintenance for these agreeable to the special interests sup- DoD case, to war reserves)? If you

kinds of procurements. Rather, there porting existing regulations because don't like the Maytag equivalence, try

must be agreement to follow today's of its comparatively limited applica- the comparable Motorola large-screen

commercial pattern of return to yen- tion compared to blanket 800 Panel television parallel. In this instance,

dor for replacement or repair (albeit approvals.,) you probably do not want a planned

the commercial vendor may also be in product improvement program involvthe field, if necessary). (Partially be- Summary ing your local repairman implementing done now for many products we The DoD should try to emulate ing it in your living room, but may

buy. Clearly acceptable for most commercial characteristics which fos- prefer to buy a new version when the

consumables ordnance like Stinger, ter continuous commercial-like com- price comes down a bit and new perSidewinder, GBU bomb kits and the petition over the lifetime of its future formance becomes irresistible, at

like, for training systems, for logistic procurements. Threat of such con- which time you put the old one in the

support equipment, and for most com- tinuous procurement competition, guest house (training base).

plicated electronics not normally when occasionally exercised, can

in immediate contact with the en- force intense supplier effort on cost- The issues in this article are potenemy.) performance in their initial designs, tially extremely important. They are

in order to make more difficult later sufficiently different from popular

5. Agreement through contractual market entry by a competitor. Contin- thought to merit major vetting and

instruments that the designs paid for ued vigorous cost/performance em- consideration. I hope the article stimuby the government, when produced, phasis also can be expected for the lates investigation and concern.

Program Manager 28 May-June 1994
1995 ACQUISITION RESEARCH SYMPOSIUM

ACQUISITION FOR THE FUTURE

IMAGINATION, INNOVATION, AND IMPLEMENTATION

Acquisition Reform: A Mandate for Change

Reengineering the Acquisition Process

June 28-30, 1995

Holiday Inn Crowne Plaza

Rockville, Maryland

The symposium will be sponsored by the

Deputy Under Secretary of Defense (Acquisition Reform)

and cohosted by the

Defense Systems Management College (DSMC)

and the Washington, D.C., Chapter of the

National Contract Management Association (NCMA)

CALL FOR ABSTRACTS OF PAPERS Practices; Contracting and Subcontracting; Cost and

Submit a one-page abstract no later than July 22, 1994. Resource Management; Defense Industrial Base; EngiPlease include author's name, business address and neering and Manufacturing Matters; Federal Acquisitelephone number, and send three copies to: tion and the Political Process; International Acquisition

DEFENSE SYST MGMT COILG Issues; Logistics Approaches and Issues; Management

ATTN RCID (ARS) Decision/Information Support Tools; and System Perfor9820 BELVOIR RD mance and Test/Evaluation.

SUITE G38

FT BELVOIR VA 22060-5565 ADDITIONAL INFORMATION

Selection of abstracts will be based on their relevancy A more detailed information brochure is available from

to the theme, subtheme, and current issues in acquisi- Mr. Calvin Brown or Ms. Joan Sable at (703) 805-2525/

tion management. Abstracts should focus on one or 2289 or DSN 655-2525/2289. Agenda and registration

more of the following 12 topic areas: Acquisition Man- information will be distributed in April 1995.

agement Education and Workforce; Acquisition Planning and Management; Commercial Products and

Program Manager 29
THE CULTURAL

IMPLICATIONS OF CHANGE

Achieving the Proper Blend

Henry C. Alberts

• phasis on total quality manage- gree that individuals cannot (do not

ment (TQM) has been interpreted TbONWOkA want to) admit to anything other than

by some as a crusade against the Ir lk perfect behavior which produced exstatus quo. However, the idea actly the expected results. Even more

was to seek out beneficial changes important, we recently have begun

which would improve products and enacting legislation which "criminalservices and use them to revive what izes" error: An "honest mistake" is

some saw as moribund industrial and interpreted prima facie as having had

service sectors. Lil dm criminal motivation!

Retrospectively, it appears that More rational behavior might be to

more was expected from that effort view the process of learning as conthan was achieved. Some research tinuous, and to understand that when

has indicated that many problems in exploring new territory, error is part of

implementing TQM originated from learning. If we have not been there

human beings' resistance to change. before, and no one else has either,

This article examines the effects of then it may be we can't find out what

cultural considerations on attempts "there" is like without making errors.

to implement change. Do babies ever know enough a priori

to walk without ever having develUp-Front Observations oped a personalized knowledge of

In the writing of Megatrends 2000, balance and falling that can come

"content analysis"' was a primary re- any other course seems preferable. It only from "erroneous" attempts.

search tool. If one were to use content is almost as if one commits heresy by

analysis as a tool to measure popular admitting some plan, made years be- In its most fundamental context,

beliefs and concepts within the U.S. fore, has produced an effect other learning is discovering what is true!

culture,' one might conclude that in than that for which it was envisioned. The definitions of the word imply the

the last 20 or more years our culture opportunity for failure.3 To learn what

has demonstrated several major char- - It would seem a preferred re- is true, do we not learn also what is

acteristics related to difficulty in imple- sponse to failed programs is to say, false? The way to understanding is

menting change: "The plan was OK, but we didn't spend littered with "supposes" that, on rigenough to make it work as adver- orous examination, are simply wrong

- The tendency to deny that an tised." Spending more money to res- assumptions. Admitting failure is an

idea or a plan has gone awry. Almost cue the situation seems to have be- important part of progress.

come "the solution of choice" to

problems of a plan having been over- The wider the acceptance a paraMr. Alberts is a Professor of Acqui- taken by events. digm has (the more acceptable a parasition Management in the Systems En- digm is), the more difficult it is to

gineering Management Department, - Failure or error is "intolerable." declare it flawed and to recognize,

Defense Systems Management College. Being wrong is stigmatized to the de- therefore, that change is necessary.

Program Manager 30 May-June 1994
No paradigm created by humans, or lems, but they could not grasp the

which includes them as fundamental value of paying management to preelements, can be "correct" for all time. vent problems from happening. In

There is ample evidence of once use- fact, in one facility where TQOM had

ful cultures overtaken by events, situ- taken hold, a frequent question conations where failure to change has led cerned the value of paying such people

to conquest by those with different when there are no problems to prebut, perhaps, more temporally suit- vent. Similarly, it was found more

able paradigms. difficult to change from "inspecting

the quality in" to "establishing a sysBased on the observations above, I II I'li, 1•i l tem which facilitates quality."

it might be argued that: If error is

intolerable, it cannot be admitted! 1)(41, tle author The keys to understanding the

Therefore, the possibility of error be- problem of accommodating change

comes undiscussable! • [oIllt., his may lie in two words: Custom, "a

usual practice or habitual way of beFor what reasons does a culture having...";. and Usage, "long continstigmatize making wrong assumptions f a cutll c. ued or established practice, habitual

to test hypotheses, gain knowledge or customary use of way of acting:

and, perhaps, to survive? Why has i1 uc' ark-, H custom: habit."'

the United States developed what

might be called "the paranoia for per- When people (any group of indifection?" l'•! [i• a1• viduals) join to provide improved existence (e.g., a family, or a founder

Why Is Change thei [ehai oral and an original small group of indiSo Difficult to Effect? 1-%IIICI-114ý ill tile viduals intimately involved in estabTo the extent that a need for change lishing a business) they begin to deimplies the existence or the possibil- velop a set of customs (responses to

ity of error, it can be perceived as stimuli) which enables them to consomething to be avoided. But, that is solidate their individual capacities into

only one partial explanation of what a gestalt.8 It is the concept of gestalt in

might lead to unwillingness to change cols or production mechanisms may the sense of "the whole being greater

a cultural paradigm. There may possi- exist; and change to production "cul- than the sum of its parts" which differbly be other considerations. ture" is not required. entiates the concept of cultural change

from that of adding more staff. There

"Change."4 can describe doing Change involving product replace- may be no greater entity created sim-

"more of the same" (e.g., adding fund- ment might involve change in the way ply by increasing the numbers of

ing to a program to achieve a result people perform their tasks; and, that people who work continuously at fixed

left unachieved at the original fund- kind of change is more difficult to tasks and are replaceable by others of

ing level) or "cancelling a program attain. One reason might be that such similar attributes. But, it is likely that

and replacing it with another," which, kinds of change involve rethinking embracing additional people with difthough untested, purports to be ca- whole sets of personal interrelation- fering skills and attributes within a

pable of achieving results not achieved ships; and that has fundamental ef- cooperative group will add to the diby prior efforts. fects on involved individuals. mension of a culture.

My observations' lead me to be- In a study made for the Depart- Groups of individuals who coexist

lieve that change involving "more of ment of Defense, Gervaise Bushe, in situations of closeness necessarily

the same" is much easier to effect. In Associate Professor, Simon Fraser work out relationships among thema sense, such change might corre- University, found that in traditionally selves. As the group undertakes exspond to a business increasing its organized production organizations, panded tasks and as it adds new memsales of a product already being sold. it was extremely difficult to achieve bers, the numbers of interrelative

Most of what is necessary to accom- management role transformation: relationships expand. At some point

modate to that kind of change in- from "authoritarian supervision" to of aggregation (i.e., as group size and

volves increasing production (perhaps "work facilitation." Almost everyone diversity increase, as common, agreedstaff and machinery) capability. Only could understand paying manage- upon objectives are expanded), unminor changes in procedures, proto- ment considerably more to solve prob- less there is a set of "understood"

Program Manager 31 May-June 1994
responses and relationships, some the interrelationships between memcustoms and usages known to and bers of the group become more interespected by everyone involved, the grated. Thus, even small changes to a

group will fail to perform as required. minor part of the complex of relationships can force major shifts in other

In The Hollow Doll, the author re- parts.

coL'its his observations of Japanese

culture. He remarks that the Japanese Rachel Carson's Silent Spring, used

do not rationalize their behavioral the concept of "leverage." The use of

patterns in the Western manner.' a "harmless"" pesticide had created

Rather, he says, they react to stimuli conditions in the food chain which

in patterned, stylized and predictable Ha rucl threatened our planet's ecology.

ways. He further observes that, historically, when a society's stylized S// Similarly, Marshall McLuhan's The

behavior patterns become subject to S Medium is the Message correctly prequestion (for whatever reason), that dicted that changing means of genersociety becomes turbulent, with un- [•1 ating, transferring and presenting inpredictable outcomes in terms of cul- formation would change the entire

tural change. t4 of culture. Once, carrier pigeons took

days to transmit limited amounts of

The logical end point of such rea- information; today we can watch

soning might lead to the observation ywstii ldc had people being killed on battlefields

that if cultural change is required, anywhere in the world.

then: ,C ': I ]

tAtidit[ l• l.. III 111C - RATE OF CHANGE: Because

-Reasons for that change must so many elements are interacting,

first be understood to be of primary f ci ll %%,hich change in any one of them (perhaps

importance to group survival occurring as a single, "small," exogA rm enous event) can create a situation in

- Changes required in custom and which everything must change to acusage are within the capability of commodate that event. The likelihood

group response; i.e., responding will of continuing stability in all interconnot fracture group cohesion. nected portions of a complex entity is

make change necessary for them, they unrealistic at best.

It may be that attempts to intro- can do so only within the limits of

duce TQM practices were not fully their own elasticity. Change beyond When things are stable until the

understood as being necessary to in- those limits may be destructive, next time something happens; when

dustrial survival. Also, it might be that large numbers of interconnected rein recognizing the need to change or An additional concept which ap- gimes exist within which events can

die, there was an unconscious deci- pears to be involved is the validity, occur, even when steady stage condision that the kinds of change required component customs and usages of a tions are achieved, that state is likely

were almost as unacceptable as death. culture.' 0 When custom and usage to be temporally short...change is ocappear to be valid, it may well be curring somewhere all the time.

Put more succinctly: When neces- difficult for arguments which aim at

sary cultural change is perceived as effecting change to prevail, regardless The point of this discussion is: once

destructive to the custom and usage of how rational they may be. a culture is established, it will resist

of a culture, the option of possible most attempts to make change for a

"future destruction" from outside Underlying problems with argu- number of reasons, all valid from the

forces may be preferred over "more ments contradicting custom and us- culture survival point of view. It may

immediate destruction" resulting from age might concern the ideas of lever- be that "cultural change" can happen

change initiated from within, age and rate of change required: only when all individuals within the

culture accept the postulate that new

In engineering terms: extant cul- - LEVERAGE: As processes be- customs and usages are "necessary to

tures are systems in equilibrium, come more complex, as organizations individual survival," and when the

When changes to the environment increase in size, as cultures expand to changes necessary are within the limwithin which the systems operate encompass more diverse populations, its of "cultural elasticity."

Programn Manager 32 May-June 1994
Thoughts on the 4 uct. Often the technological underCulture of Design standing is the easier knowledge to

Over the past four years, the De- gain.

fense Systems Management College" In r a i u

has conducted 32 workshops which Incorrectly assigning customer

examined various portions of the de- preferences, or surveying them with

fense acquisition process. During flawed instruments, can lead to dethese workshops, program managers signs that are unsuccessful in the

- civilian and military, government marketplace.

and contractor - shared problems

they had experienced with the pro- Great designers have a perception

cess. They proposed numerous solu- of balance that transcends the zeittions to those problems. The prob- geist.t3 They arrive at some fundalems and their proposed solutions N'Cl tlmll". 1,1L. mental core of validity of human needs

were formed into a single database. combined with technology in a prod-

, N•ctiI I I'sI 11c. uct that may even evoke universal

We then convened four workshops response of "goodness A product": a

whose purpose was to design a sys- CS Nt ItlPC C01l1l4l1![L• condition which may be commonly

tern based on performance of "func- described by the phrase, "I don't know

tions""2 involved in moving from ideas if it's ART, but I like it."

to fully supported operational weapon 4A1.1 i• ••W

systems. The combination of technical ex-

( tpertise, "market feel,"" and the caWhen we had achieved a function- pacity to blend complexity into a sinally complete system design, we con- gular whole is the essence of good

vened another workshop to answer lit I I] design practice. I perceive that parwhether, if implemented, the func- ticular gestalt as the culture of design.

tionally designed system would cre- t I ()

ate a climate in which the problems In our own case, we provided the

previously experienced would be pre- functionally correct design without

cluded from occurring, considering externally created difficulties. A series of forthcoming workWe found that of 198 problems, 66 shops will attempt to deal with those

of them would not be precluded if the packages the product as technology culturally generated problems, and

functionally derived acquisition pro- indicates is defined as a technically use that understanding to shape an

cess were installed. sound item. acquisition process which will apply

successfully the culture of design.

When we sought reasons why the To be successful in the marketproblems would not be precluded or place, a technically sound product A Word of Caution

solved, we found that those problems design may need modification in or- While we have expectations of

had to do with interactions between der to meet customer preferences that being able to achieve the proper blend

the process and the environment care nothing about technical sound- of technical correctness and product

within which the acquisition process ness. packaging in our final version of a

operated. redesigned acquisition process, we

When customer preferences are not recognize that the design process takes

An analysis of why the design pro- well integrated into perfect technical time. We understand that installing

cess we had followed did not treat the designs, the products may be per- that process will take additional time.

cultural issues yielded some interest- ceived as "bad." We understand that the organization

ing insights about the particular de- of specialized acquisition interests

sign process we had used, and about The ability to combine customer within and outside of the Department

the culture of design, in general. preferences with correct technology will seek to keep change within acis the precious attribute of a great ceptable limits.' It may be that for

A technical design is one driven by designer. That is, designers must un- certain kinds of complex system deapplication of technically sound sci- derstand not only technology, but also signs, achieving a balanced design

ence. For this discussion, an item how to determine customer prefer- is beyond the capabilities of today's

which uses sound technology and ences and blend them into the prod- analytical and management processes.

Program Manager 33 May-June 1994

L - -. - .,m•• mm m m mmmmmmm m m m m m m mmm
That caveat has been a consistent properties which can neither be detheme of some of my other papers and rived from the elements of the whole MANAGEMENT lectures. It may be that achieving bal- nor considered simply as the sum of DELIBERATION anced designs of great complexity will these elements," p. 5b7.

necessarily await development of dif- 9. That is, they do not reason re- CENTER ferent kinds of mathematical con- sponses to stimuli in terms of AristoOPENS AT DSMC structs and different kinds of manage- telian cause and effect.

ment concepts. If that is the case, it 10. Webster's From the word VALID;

B rigGen (Sel) Claude M. Bolton, behooves us all to hasten those devel- ".. .well grounded in principles or evilr., USAF, DSMC Comman- opments so we can get on with the dence; able to withstand criticism or

dant, officiated at a ribbon-cutting task of creating the systems of the objection, as in argument; sound," p.

ceremony on I June 1994, opening future. 1473.

the new Management Deliberation 11. DDT was found to be harmless to

Center (MDC). It occupies reno- humans before it was permitted in

vated space originally designated Endnotes widespread use. Since the concern

as the Abilene Room, after the was for humans, no one thought to

"Abilene Paradox," a term coined 1. The term "content analysis" be- determine its effect on other, noninsect

by Dr. Jerry Harvey to explain how gan to appear after World War If in life forms.

people and organizations may act books which dealt with the intelli- 12. Webster's, FUNCTION: "1) The

counter to their own goals when

implementing a decision no one gence community. It refers to the prac- normal or characteristic action of anymay have actually favored. The tice of reading media articles and ob- thing; esp., any of the natural specialCommandant stressed that the prin- serving the frequency of items which ized actions.. .2) A special duty or

cipal purpose of the room is still deal with some underlying subject performance required in the course of

avoidance of bad decisions and matter. John Naisbitt refers to content work or activity...."

"trips to Abilene." analysis as ic of his primary re- 13. Literally translated from the Gersearch tools for the book, Megatrends man as "Ghost of tie Times." The MDC has been operating since 2000. 14. The term attempts to describe a

1990 in a portable mode with its 2. "Culture," as used here, is defined special sense of market requirements. "groupware" system, which uses

networked computers to share in- in Webster's New World Dictionary, 15. See my other papers, which define

formation, brainstorm problems, Third College Edition, as: "a) the ideas, Catch 23, Catch 24, Catch 25 and

evaluate alternatives, develop and customs, skills, arts, etc., of a people Catch 26.

review plans, conduct various forms or group that are transferred, commuof voting, and develop group con- nicated, or passed along to succeedsensus. ing generations...b) such ideas, cus- References

Features of the facility include video toms, etc., of a particular people or

and adcomputer tr projection prjcinwit 'ith two group tin.tcwhoariua in a particular period; civiliza- The Hollow Doll; William

rear-screen projectors so normal tion... c) the particular people or group Bohnaker. (1st Edition) New York,

room lighting can be maintained: a having such ideas, customs, etc."; p. Ballantine Books, 1990: Library of

carpeted raised floor throughout, 336. Congress Call Number DS822.5.B64

with wiring hidden under the floor; 3. Webster's, LEARN - "1) to get Silent Spring; Rachd1 Carson. (25th

and extensive roll-out writeboards knowledge of (a subject), or skill in Anniversary Edition) Boston,

on two sides of the room. (an art, trade, etc.) by study, experi- Houghton Mifflin, 1987: Library of

ence, instruction, etc.... 2) to come to Congress Call Number SB959.C.3

Custom-designed modular furniture know...3) to come to know how..."; p. The Medium is the Message;

is planned in the near future to hide 769. Marshall McLuhan. (1 st Edition) New

the technology when not in use. 4. Webster's, CHANGE: "1) to put or York, International Publishers, 1968:

The room is distinctive in that the

furniture can be reconfigured to take (a thing) in place of something Library of Congress Call Number

meet the needs of different groups else; substitute for, replace with..."; p. P90.M2583F5

and various facilitation require- 234. Megatrends 2000; John Naisbitt

ments. Possible room configura- 5. A personal kind of "content analy- and Patricia Aburdene. (1st Edition)

tions will include: 8- and 12-person sis." New York, Morrow, 1990: Library of

conference tables, 16-person U- 6. Webster's, p. 341. Congress Call Number HN59.2.N33

shaped classroom, multiple 6-per- 7. Webster's, p. 1469. Catch 23 et seq; Henry C. Alberts,

son workgroups, and a V-shaped 8. Webster's, GESTALT: "...inte- Presented to the Military Operations

negotiation arrangement. grated structures or patterns that make Research Society, West Point, N.Y.

I __ Iup all experiences and have specific October 1991.

Program Manager 34 May-June 1994
•rhe Spring 1994 issue, of the Defense Acquisition Llni\'ersil\

N(DAU) journal, Acquisition Rev'iew Quarterh, (ARO), is now available. It

- ,'as mailed automatically to all Prograni Manager subscribers and

some 13,000 senior members of the Acquisition Corps whose names and

addresses were provided by the Military Services. The Summer issue also wvill

be mailed to both lists.

The Defense Systems Management College Press publishes the ARQ for the

DAU.

Sending unsolicited subscriptions (complimentary copies) cannot continue indefinitely, as the ARQ and Program Manager ultimately must maintain

separate circulations (subscribers).

Subscribing to the ARQ Subscribing to Program Manager

Government employees may sub- Acquisition Corps readers not on

scribe to the ARQ by submitting a the regular Program Manager subwritten request, using the insert card scription list but receiving complior letter, to: mentary copies may subscribe by submitting a written request, using the

Editor, Acquisition Review Quarterly insert card or letter, to:

Defense Acquisition University

2001 N. Beauregard St. DEFENSE SYST MGMT COLG

Alexandria, VA 22311 ATFN DSMC PRESS

9820 BELVOIR ROAD

The DAU is negotiating with the SUITE G38

U.S. Government Printing Office for FT BELVOIR VA 22060-5565

their handling of paid subscriptions

for nongovernment subscribers. The

next issue of the ARQ and Program

Manager will publish this information.

For additional ARQ information, contact Wilbur lones, Managing Editor, at

(703) 805-2525 (DSN 655-2525), or Robert Ball, Editor, at (703) 805-2892/

3056 (DSN 655-2892/3056). For Program Manager information, contact

Esther Farria, Editor, or Carrie Simpson, Editorial Assistant, at (703) 805-

2892/3056 (DSN 655-2892/3056). Fax for both periodicals is (703) 805-3856.

Program Manager 35 May-June 1994
INSPECTORS GENERAL

AUDITOR TRAINING

INSTITUTE

Paul F. Caron

Inspectors General Auditor lishment and highly skilled Office of

Training Institute was created to Inspector General staff members"

implement recommendations

T made in two studies (1987 and,- Fulfill the continuing profes1990) conducted by the President's sional education requirements as

Council on Integrity and Efficiency published in the Comptroller

(PCIE). The studies called for an in- General's Government Auditing Standependently administered auditor dards as they relate to the perfortraining center. The Institute provides mance or review of federal programs

Offices of Inspector General (OIG) or operations audit

employees from all segments of the

federal government the audit skills - Provide training that serves the

and knowledge essential to meet pro- Leadership is basic needs of the federal OIG audit

fessional auditing standards and to like a piece of community and facilitates profesperform effectively in the federal en- sional development, quality and convironment. string. Iull it sistency among PCIE members.

All OIGs can participate, and the and it will Mission and Philosophy

PCIE's Audit Committee serves as the follow wherever The mission and philosophy of the

Institute's Board of Directors. This Institute is:

Board oversees program development, you wish. Push

instructors, facilities and administra- - To provide training that will entive costs. it and it will go hance the skills, abilities and knowlnowhere at all edge of Federal Office of Inspectors

The Institute, located at Fort Be]- General auditors.

voir, Va., is administratively under

the Department of Treasury/OIG. Stu- -PRESIDENT DWIGHT D. - Embodied in and underlying all

dents benefit from its campus-like EISENHOWER actions at the Inspectors General

learning environment. It conducted Auditor Training Institute are the folits first class in July 1991. Through lowing basic beliefs:

September 1993, 1,175 individuals

from 51 departments/agencies have - We know that federal OIG auattended. the PCIE and the Executive Council ditors improve government operaon Integrity and Efficiency (ECIE) to tions.

Purpose of the Institute more effectively and economically:

The Institute was created to com- - We care that our students learn.

bine the best efforts of the members of - Meet the statutory require- ments of the Inspector General Act - We protect the quality of our

Mr. Caron is Deputy Director of the instruction.

Inspectors General Audi"or Training - Meet the provisions of execuInstitute, Fort Belvoir, Va. He is a PMC tive orders wherein the PCIE "Shall - We are proud to be the best we

74-1 graduate. develop policies that will aid in estab- can be.

Program Manager 36 Moy-June 1994
AC ý Ihvx"ý iryow 1) i C£nraliticefltil

~O (~h)rmllcd :C:1i01 fuill a1:c~cc m on t i k 

Th 1... Oc Istitntc 1as .eein approvcd tiolni Rergi!'try of CPII Sp.on r. -iic

£:; '4 Of•'40•inh aI a start-nlp- sponsor on the National boards have finl aLlthoritl on ,hc

'V Auditor Traiininiý ./3) 1"c:,i.! r' of C11

1' Sponsors. Pci.istra- aCCCeptancC of in1diVidual proeIram•.

tion i'; effective throu.$h januar' 31,

,i:Ate ,udior'/! e'.v t9:Q sponsorshilp niLiueCr IS 93- Registratlion

',LO: Trion' A' Appica- 00-133-95. This sponsor has been Participants must prercgister to

I, wooen ,ra inted probaitionary statls by the attend the individual programs. indi- ,.,., ,IS1JtCn1C1, tS ,.\uditiný,/l Nationail Associa]tion of State Boards VidtlMls in the Department of Defense

Ov of AccountMncv as a start-up sponsor may attend the Institute by contactLk'e of Independent PLubIC Accoun- of continuing professional education. ing the Registrar at (703) 805-4501.

ta ints fori Aiditin-/3 cdays Upon successful completion of the

-in mcint Statement Fraud Audit- course monitoring program and rein,1/2 daw." view by the CPE Sponsor Registry

YOUR AUDITOR'S PERFORMANCE

Does Your Leadership Style Maximize It?

NAThat makes us accept or Five characteristics selected for.- Unable to give guidance or

V@reject our leaders? What why we accept our leaders wee.: constructive criticism (136 or

characteristics do we perceive as 35.6 percent)

good, bid, acceptable, rejectable? - Supports subordinates (21. or

Are interpersonal relationship char- 55.7 perceiit) - Indecisive (118 or 30.8 percent)

acieristics more or less important

than professional qualifications? Are - Accepts responsibility (202 or. - Unprofessional and disorganized

management techniques more or 52.8J'percent) (120 or 31.4 percent).

less important ihau personal quailtes?- Knowledge of subject (163 or- From the overall results of the

42.6 percent) questionnaires. I categorized the

During the past 2 years, 382 se- ' lists of characteristics provided by

nior!!ead auditors attending the In- - Respect and feeling for others- these senior/lead auditors and came

spectors General Auditor Training and extremely effective planner to these general conclusions: (1)

Institute ranked the five character- (133 or 34.8 percent) the Interpersonal relationship and

Istics they believe are the most personal qualities of their audit leadmeaningful for leadership accep- - Fair (132 or 34.5 percent). ers appear to be overwhelming meatance or rejection. All auditors at- sons for rejecting them; (2) leaders

tending our first 18 sessions of the Five characteristics selected for seem to be accepted more readily

Intermediate Auditing program were why we reject our leaders were: when they appear to strike a balgiven two questionnaires to com- ance between Interpersonal qualplete. Respondents were auditors - Does not support subordinates, tics, and management techniques.

representing 30 different federal de- (182 or 47.6 percent)

partments or agencies. ý My philosophy Is we should treat - Does not communicate well with others as we want to be treated.

subordinates, peers or superiors.

(157 or 41 percent)
considering the demise of FROM GLOBALISM the Soviet Union. For ex- ample, with reference to TO REGIONALISM- Latin America, paper

presenter, leffrey

New Perspectives on U.S. Foreign Herbst, says that the

United States must And Defense Policies relegitimize its involvement now that Edited by Patrick M. Cronin the global threat of

Published by NDU Press, communism is nil,

Washington, D.C., 1993. and that concerns

with narcotics trafficking, nuclear pro-

"T'he subject of this book was taken from the source of its liferation, and the

. content - a Topical Symposium at the National De- environment are

fense University (NDU) in 1991. Its content consists prima- taking the spotrily of a number of papers presented at the symposium along light.

with a keynote address by General Colin L. Powell, USA

(now retired). In a few cases where symposium papers did From the international and transnational pernot cover the entire subject area, additional papers were spective, the papers also focus on the challenge to the United

developed later to complete the coverage. States in moving from a policy of global confrontation with

communism to a policy of protecting its vital national interThe focus of the book is the changing worldwide political, ests in the various regions of the world. Interestingly, the

economic and miiitary situation and environment caused by same forces (primarily economic and ideological) that caused

the recent dissolution of the former Soviet Union. The the breakupof the Soviet Union are activeandcreatingcrises

general consensus of the writers is that this change is causing in other nation-states and regions of the world. These forces,

the most profound shift in U.S. strategy in this half of the 20th in most cases, transcend regional boundaries. In addressing

century. The changed situation is treated from two different these forces, the writers discuss the strategic implications of

perspectives- regional and international and transnational. populations change, the environment, resources and security, including the United Nation's peacekeeping role. The

Addressing symposium attendees, General Powell em- increasing population, especially in the less-developed counphasized that: (1) while the United States must expend more tries, growing competition among nations for economic reeffort to address domestic challenges, it will retain a critical sources, and increasing environmental concerns, is expected

position of global leadership; (2) world history has not come to heighten the need for regional as well as global security.

to an abrupt halt with t0 - demise of the Soviet Union but, The United States can pursue one, or a combination, of

rather, the trends of the moment will shift again in the future, several alternatives in responding to the changing situation.

and we should not dismiss Russia's present residual military Some of these alternatives include isolationism, unipolar

capability or its future military potential; and (3) the world is internationalism, multilateral internationalism, and regional

still a troubled and dangerous place with many regional internationalism.

crises. He cautioned that a stable military "base force" (a

sufficient military capability) is needed to undergird U.S. The book is easy to read and provides thought-provoking

strategy, and it would be detrimental to the readiness and information on a timely and critical subject. History and

quality of the U.S. armed forces if they were subjected to world current events indicate that the United States cannot

constant fine tuning in response to daily or weekly news pursue a course of long-term isolationism. Also, economic

reports of international events, reality indicates that the United States cannot unilaterally

police the world over an extended period of time. Therefore,

Papers on regional perspectives cover the Persian Gulf, it is likely that the United States security strategy will evolve

Middle East, Northeast Asia, Southeast Asia, South Asia, as some form of multilateral internationalism or regional

Latin America and Africa. Each region is described (some internationalism. Recent U.S. international activities point

from an historical perspective) and its political, economic to a combination of the two.

and military situations are discussed, with emphasis on the

interaction dynamics of the nation-states comprising the I highly recommend the book to those interested in

particular region. Most of the papers treat long-standing international relations, U.S. foreign policy, national secuborder, religious and/or ethnic disputes, and provide com- rity, and history.

ments on possible future events related to those issues. The Professor Norman A. McDaniel

papers also provide some insights into how the United States Principles of Management Department

might regard, or interact with, those regions in the future Defense Systems Management College

Program Manager 38 May-June 1994
FROM THE COMMANDANT

,veral months ago, I mentioned that at DSMC we PMT 301A, you must have completed PMT 201

wou d begin a process to review and improve (soon to be ACQ20 1). Currently, we have students

the Program Management Course (PMC). in PMC with no previous acquisition experience or

Begun by my predecessor, RADM Bill Vincent, education along with students with upwards of 30-

the process is entitled "DSMC 95." During the past 35 years of acquisition experience and education.

year, we defined the process and Mr. Bill Bahnmaier This has always caused difficulties in course design

is its owner. He will provide an in-depth discussion and execution. Having a prerequisite will aid us

of the process and accomplishments in Program greatly in designing and offering a better-focused,

Manager. I'll not steal his thunder, but I want to tell more-effective, shorter PMC. The prerequisitecourse

you, briefly, where we are today. PMT 201 and the basic course PMT 101 are part of

the DSMC 95 process and also are being redesigned

First, let me describe how this process works. To as part of an integrated package of program managestart, we went to the acquisition field commanders, ment education and training.

discussed what we provide their people in terms of

course material content, and asked what they, the Before I leave this topic, I should mention a new

field commanders, want. We visited important course, also part of the DSMC 95 process, to be

stakeholders like the USD(A&T), DUSD(AR), piloted this summer. It will be called PMT 301B. It

DACMs, and DAE&T. These discussions, along is a four-week course designed primarily for ACAT I

with student surveys, constituted the requirements program managers, deputy program managers and

upon which to base PMC improvements. The PEOs. Ideally, we would like a person togo through

requirements became inputs to the PMC course this course en route to one of the mentioned posidevelopment stage of the process. Currently, we are tions. The course presents a common set of topics

in this stage and have progressed to detailed lesson- needed by all to be effective in the current environplanning aspects. We will then pilot the courses and ment. In addition, a large portion of the class would

offer them in full production in the summer of 1995. be tailored to the individual student in terms of his/

her program, contractor, issues, staff concerns, poliAs part of the overall process, we will evaluate tics, budget, etc. These items would be discussed

how well the DSMC organization supports the im- and analyzed, and the expertise of the College

proved curricula and make organizational changes, brought to bear to provide the student with the most

as required. That evaluation has already begun and effective strategies for use on the job. Essentially, we

the entire organization is being encouraged to will do in four weeks what many individuals in these

participate. In addition, the Commandant (in this positions do on the job over a six-month period, but

case, me) will visit the field commanders and stake- without benefit of outside consultation. More on

holders every six months to status this process and PMT 301B and its progress in future Program Mansolicit improvements and new or changed require- ager articles.

ments. This will be done to improve not

only the course material and relevance, but the As always, I am out of space. These are exciting

process as well. times for us at DSMC. As we understand our customers better and their requirements, we see more

That is a "quick and dirty" on the basic process opportunities to improve what we are doing for the

and Bill Bahnmaier certainly will give you more acquisition workforce. Let us hear from you. Until

detail. Let me say that, relative to the PMC, it will be the next time....

an improved and shortened course. The new PMC

(PMT 301A) will be 14 weeks long vice the current - Claude M. Bolton, Jr.,

20 weeks. One way in which we are able to achieve Brig Gen (Sell), USAF

this is by requiring prerequisites. In order to attend

Program Manager 39 May-June 1994
---------------------------------A- ------------------ ------ -------

Progrmi M~iages Symosiu

June 199 7-29 

Fort ViginX elvor, IJNDRSTADINGACQUSITIN REORM

ACUIITONREOR I A TE ORFRNTOFACUIITO

MANCE RVIEWANDN SETINQ00LEISLATIVN EFACTIITIE

Speak-ers pan&s andvworlhops will address the theme 4hd present views from the White

Houcnse, the Hill, Dtep.ftmenif l kf ense and lindusti.jRepresentatives from Industry,

~~vc~nmentk 4Uti wela PS~ senwc icas rDO)D -. and each of the Servces* Mll

gmdwmess an mvfitrl' V,- s oflil from

Please sendl information about the Ii I t Annual Program Managers Symposium andl

Alumni Association membership to: (Please print or type,)

Nam ______ _______________________

Organization- -____________________________________________r

Address __ ____ _________________________

city _____ ________ __Stite _ ____________Zip Code______-

Mail to: DSMC Alumni Association 301-309-9125

7731 Tuckernian Lane, Suite 131 Fax 301-309-0817

Potomac, MD 20854

-noro Mannr 40 Ma-June 1994