November 22, 2005 

The Honorable John Warner 

Chairman 

The Honorable Carl Levin 

Ranking Minority Member 

Committee on Armed Services 

United States Senate 

The Honorable Duncan L. Hunter 

Chairman 

The Honorable Ike Skelton 

Ranking Minority Member 

Committee on Armed Services 

House of Representatives 

Subject: Defense Acquisitions: Joint Forces Command’s Limited 

Acquisition Authority

In recent years, Congress has expressed concern that urgent joint 

warfighting requirements are not always met in the most expeditious 

manner, particularly command and control and blue-force-tracking 

capabilities that reduce the chances of friendly-fire casualties. In the 

National Defense Authorization Act for Fiscal Year 2004 (P.L. 108-136), 

Congress gave the U.S. Joint Forces Command (JFCOM) Limited 

Acquisition Authority (LAA) to address these and other joint-warfighting 

challenges. LAA is an authority aimed at ensuring that measures to meet 

urgent, unanticipated joint warfighting needs are conceived, developed, 

and fielded in an expeditious manner. Enacted for a 3-year period, LAA 

will expire after September 30, 2006. The Act required GAO to determine 

the extent to which LAA has been used. Specifically, we focused on 

(1) how JFCOM used the authority during fiscal years 2004 and 2005, 

(2) the processes and procedures JFCOM developed to implement the 

authority, and (3) the challenges of implementing it. In covering these 

areas, we did not evaluate the quality of the projects undertaken or the 

value added of the equipment provided to the warfighter under LAA. 

United States Government Accountability Office

Washington, DC 20548 

Summary During the first 2 years, fiscal years 2004 and 2005, JFCOM used LAA for 

six projects. Five were completed 2 to 17 months after being approved, 

while the sixth is not yet complete. Fielded capabilities include a precision

air drop system for small (e.g., 2,000 pounds) logistics packages; a system 

Page 1 GAO-06-240R Limited Acquisition Authority
designed to identify and locate improvised explosive devices; a system to 

improve blue-force-tracking to prevent friendly-fire casualties; and 

advanced, mobile, command and control systems for commanders. 

According to JFCOM, these projects accelerated capabilities to the 

warfighter by providing 60- to 80-percent interim solutions rather than 

waiting years for a 100-percent solution. The Command leverages existing

technologies, Advanced Concept Technology Demonstrations, and ongoing agency research and development efforts for its LAA projects. 

Funding for completed projects has totaled about $9 million in research, 

development, test, and evaluation funds, ranging from about $500,000 to

$3 million per project. No procurement funding has been used. Funding 

has mostly come from JFCOM. The sixth project is a hands-free two-way 

translator that seeks to provide real-time translation between spoken 

English and other spoken languages, particularly Iraqi Arabic.

For the six projects, JFCOM has been following a set of policies and 

practices, which it formalized in July 2005. To use the LAA, JFCOM can 

only consider those requests that are to meet a combatant command’s 

needs. Once a request is received, JFCOM follows a process to define, 

fund, and execute a project to satisfy the request. In general, the process 

consists of multiple phases, including concept development; proposal 

review using specified criteria, including checks for duplication of effort; 

feasibility studies and final approval by the JFCOM commander; finding 

project funding; arranging for contracting; and executing the project. 

JFCOM has decided to manage its process with a staff of generally 2 parttime people. For contracting, JFCOM mostly relies on other organizations, 

including five Department of Defense (DOD) organizations that have been 

directed by the DOD to assist with the LAA. Finally, while the JFCOM LAA

staff brokers the LAA process and facilitates the projects, it does not 

actually execute them. Execution is mostly handled by traditional 

acquisition organizations, such as service development organizations. 

In implementing LAA, JFCOM has faced challenges in finding funding for 

and sustaining LAA projects. Our work has shown that assessing the 

effectiveness and utility of the capabilities after they have been fielded has 

also been a challenge. Because LAA is an authority, not a program, it does 

not have budgeted funds. To implement an LAA project, JFCOM LAA staff 

must find a source for the funds, such as from a service, existing program 

of record, or defense agency. This keeps the projects austere, but adds to 

the time it takes to get a new capability to the field. In some cases, JFCOM 

has taken funds from its own programs to pay for LAA projects. After a 

capability has been acquired, an obligation for sustainment is created, 

which LAA does not cover. JFCOM tries to identify a Service, defense 

Page 2 GAO-06-240R Limited Acquisition Authority
agency, or other entity’s program of record to adopt it for long-term 

sustainment. Finally, JFCOM has not had a systematic process to assess 

the effectiveness and utility of the LAA capabilities after fielding. JFCOM 

officials informed us that they are currently changing LAA processes and 

procedures to require effectiveness assessment plans as part of LAA 

proposals. 

LAA is intended to allow JFCOM to rapidly provide battle management, 

command and control, communications, and intelligence equipment, and 

any other equipment the JFCOM commander determines is necessary to 

facilitate the use of joint forces in military operations or enhance the 

interoperability of equipment used by joint forces. The law limits the size

of LAA projects to those with estimated costs per system of less than $10 

million for research, development, test and evaluation (RDT&E), and less 

than $50 million for procurement. 

JFCOM is one of the nine combatant commands in DOD and provides 

joint-capable forces and joint capabilities that support the Global War on 

Terrorism and combatant commanders’ operational needs. Also, JFCOM is 

DOD’s joint-force integrator and interoperability advocate for the 

combatant commands, leads joint-force transformation and joint 

experimentation in DOD, and produces joint concepts and capabilities. 

LAA is one of several authorities for rapid acquisition that has been 

created to try to put improved warfighting capabilities in the field faster 

than the conventional acquisition processes typically allow. One such 

authority is the Secretary of Defense’s Rapid Acquisition Authority (RAA), 

which allows the Secretary to identify equipment as urgently needed to 

eliminate a combat-capability deficiency that has resulted in combat 

fatalities. LAA is broader than RAA authority. RAA allows the acquisition 

of only specific equipment that eliminates a capability deficiency that has 

already caused combat fatalities, and RAA projects must be approved by 

the Secretary of Defense. LAA allows the acquisition of many types of 

equipment before and after combat fatalities occur, and LAA projects are 

approved by the JFCOM commander. According to JFCOM officials, it is 

only through LAA that JFCOM has the authority to satisfy the 

unanticipated, unbudgeted, urgent mission needs of other combatant 

commands.

Since its enactment, JFCOM has used LAA for six projects. Five were 

completed and deployed—primarily to warfighters in Iraq and 

Afghanistan—2 to 17 months after being approved. A sixth project is 

ongoing. According to JFCOM, these completed projects accelerated 

Background 

JFCOM Has Used LAA 

for Six Projects

Page 3 GAO-06-240R Limited Acquisition Authority
capabilities to the warfighter by providing 60- to 80-percent interim 

solutions to battlefield problems, rather than waiting years for a 100-

percent solution. Total cost for the five completed projects has been about 

$9 million in RDT&E funds. Procurement funds have not been used so far. 

Details are shown in Table 1. 

Page 4 GAO-06-240R Limited Acquisition Authority
Table 1: Description of the Six LAA Projects 

Project name Capability provided 

LAA cost 

($ in millions) 

Number of months

to complete 

project after 

request approved Deployment dates 

Change Detection Work 

Station 

Detect landmines and 

improvised explosive devices 

along convoy routes by using 

visual imagery to identify and 

locate changes in terrain. 

$0.55 5 – 11 November 2004 – 

May 2005 

Command and Control on

the Move 

Improved communication 

package for commanders, 

allowing broadband reachback to information while on 

the move over rough terrain 

or dismounted from a vehicle. 

$1.95 11 – 14 April 2005 – July 2005 

Joint Precision Air Drop 

System 2,000 Pounds 

High-altitude precision air 

drop of logistics support 

packages for forces where 

ground delivery or an airfield 

is not available. 

$2.19 16 - 17 September 2005 – 

October 2005 

Joint Task Force 

Commander Executive 

Command and Control 

For joint task force 

commanders, remote access 

to classified and unclassified

networks while away from the

headquarters compound. 

$0.85 4 – 15 September 2004 – 

August 2005 

Joint Translator ForwarderRapid Attack Information 

Dissemination Execution 

Relay-Joint Blue Force 

Situational Awareness 

Provides machine-to-machine

transfer of blue-force-tracking 

data from battle 

management, command and 

control systems to strike 

aircraft by integrating blueforce-tracking capabilities 

across the theater. 

$3.38 2 – 5 June 2005 – 

September 2005 

Simultaneous 2-Way 

Speech Translation 

Expected to provide a handsfree device for simultaneous 

translation of American 

English to Iraqi Arabic and 

vice versa. 

$15.0: $6.4 RDT&E +

$8.6 procurement 

(estimated) 

On-going On-going 

JFCOM has drawn on extant, mature technologies for its LAA projects. In 

addition, JFCOM has used parts of existing service or defense-agency 

Advanced Concept Technology Demonstrations and other efforts to 

rapidly develop and/or acquire a new, joint capability for the warfighter. 

For example, the Change Detection Work Station project originated from

an extant Joint Area Clearance Advanced Concept Technology 

Demonstration that uses visual imagery to detect land mines by detecting 

Page 5 GAO-06-240R Limited Acquisition Authority
changes in terrain. Using LAA, this technology was modified to detect 

improvised explosive devices along convoy routes in Iraq and Afghanistan. 

Similarly, the Joint Precision Air Drop System 2,000 Pounds project 

originated from an extant Advanced Concept Technology Demonstration

focused on developing precision air-drop systems for 10,000- and 30,000-

pound loads. Using LAA, this technology was modified to handle much 

smaller loads for re-supplying Special Operations teams operating in Iraq.

Half of the LAA projects originated from existing, joint technology 

demonstration programs. According to JFCOM, LAA projects also can 

originate from commercial- and government-off-the-shelf products and one 

of JFCOM’s subordinate commands—the Joint Systems Integration 

Command. 

JFCOM has adopted a number of processes and procedures to manage 

LAA. These include processes and criteria for screening requests for LAA 

projects. JFCOM uses a small staff to manage the LAA process, and 

leverages and partners with a variety of other organizations to fund, 

contract for, and execute LAA projects. 

Processes and 

Procedures Used By

JFCOM to Manage 

LAA 

JFCOM Uses a Process to 

Screen Requests for LAA 

Projects 

For the six projects undertaken so far, JFCOM has been following a 

process, which it formalized in July 2005. The LAA process consists of 

multiple phases, which can be tailored to meet requests as expeditiously 

as possible. The phases are: 

• Proposal Receipt - JFCOM can only consider those requests or

proposals that come from or are validated by a combatant command. A 

request or proposal may come directly from a combatant command, or 

may be submitted by a component commander or service. However, in 

the latter case, JFCOM cannot consider the request unless a combatant 

command validates it as an urgent operational need in its assigned area

of responsibility. 

• Feasibility Assessment - the requested capability must be readily 

obtainable or have a reasonable expectation of being developed in a 

year. The assessment includes a technical evaluation; value versus cost 

determination; ascertaining if parallel or competing initiatives are 

underway; assessing materiel and non-materiel approaches to resolve 

the shortfall or interoperability deficiency; and determination of 

whether a proof of concept evaluation is required and what pass/fail 

criteria should be applied. Exploratory testing of various system 

elements or of the entire system is conducted if necessary as part of 

this feasibility assessment. 

Page 6 GAO-06-240R Limited Acquisition Authority
• Proposal Review and Approval - the JFCOM Judge Advocate’s Office 

reviews the proposed project to make sure it complies with the LAA 

statute. The JFCOM commander has final approval authority.

• Locating and Obtaining Funding - JFCOM develops a plan of action for 

the project, and finds funding. The JFCOM comptroller reviews each 

project’s funding to make sure the proper appropriation is used and 

that total costs stay within LAA statutory limits. 

• Contracting - any new contracts or modifications to existing contracts 

required for the project are obtained.

• Project Execution - the product is developed and/or acquired and the 

capability delivered to the warfighter. JFCOM’s oversight and 

accountability for LAA capabilities ends within two years of the 

approval of an LAA request. 

The desired capability must not duplicate capabilities under development 

elsewhere in DOD or that are part of an existing program of record or 

program objective memorandum. The requested capability can, however, 

accelerate such capabilities. To avoid duplication, according to JFCOM, it 

coordinates with Advanced Concept Technology Demonstrations and 

engineering and systems acquisition commands across DOD to determine 

if the requested capability already exists. One effort to avoid duplication 

involves the JFCOM science advisors. Each of the services has a science 

advisor located at JFCOM who checks with the Defense Technical 

Information Center, a repository of technical information in DOD. Another 

effort involves a JFCOM official who coordinates with the Program 

Executive Office Interchange—an initiative that supports Army, Navy, Air 

Force, and Marine Corps command and control program executive 

offices—to find out if any similar efforts exist in the services.

Based on its screening process, JFCOM does not accept all requests made 

to use LAA. For example, JFCOM rejected two requests during fiscal year 

2004. The Collaborative Information Environment was rejected because no

combatant command would validate it as an urgent operational need and 

the cost exceeded LAA statutory limits. Another request, for the Joint 

Extended Collaborative Environment, was rejected because again no

combatant command would validate it as an urgent operational need and 

the Army was already developing a capability that met the need, according 

to JFCOM. 

Testing for LAA projects can be limited and is sometimes conducted by the 

warfighter upon receipt of the capabilities. However, field operational 

tests are conducted for all LAA capabilities, and training plans are 

prepared before the capabilities are fielded, according to JFCOM officials. 

Page 7 GAO-06-240R Limited Acquisition Authority
Prior to the field operational tests, requirements for testing LAA projects 

can vary depending on the equipment involved. For example, if the LAA 

capability consists of commercial- or government-off-the-shelf products 

that are already configured for military use, no hardware testing would be 

required. On the other hand, if the LAA capability required new software 

to be developed, it would have to be tested prior to delivery to the 

warfighter. 

JFCOM Uses a Small Staff 

to Manage LAA Process 

JFCOM leverages and partners with a variety of other organizations to 

fund, contract for, and execute LAA projects. This enables JFCOM to keep 

its LAA staff small—generally 2 part-time people. Their primary role is to 

identify and work with various organizations to leverage and form 

partnerships for LAA projects. JFCOM officials commented that such 

leveraging and partnering help to promote the concept of jointness. For 

example, JFCOM has sought and obtained funds from the Naval Air 

Warfare Center Weapons Division, China Lake, Calif., for the Change 

Detection Work Station.

JFCOM, by choice, does not have dedicated acquisition staff for LAA 

projects. For contracting services, JFCOM mostly relies on other 

acquisition organizations in the services and defense agencies. For 

example, Army and Navy acquisition organizations have provided 

contracting services for various LAA projects. DOD has directed five 

acquisition organizations to provide acquisition services for LAA on a 

priority basis; however, JFCOM is not limited to using only these five.

Similarly, staff from a JFCOM subordinate command has directed or 

accomplished LAA projects, but mostly the project execution staff is part 

of the service or entity that is actually conducting the project. For 

example, the work for the Change Detection Work Station was conducted 

at the Army Communications and Electronics Command’s Night Vision 

and Electronic Sensors Directorate, and the work on the Joint Precision 

Air Drop System 2,000 Pounds was conducted at the Army Natick Soldier 

Center and at the Air Force Air Mobility Command. A project’s execution 

staff is part of JFCOM only if the project is actually being executed by a 

JFCOM organization. For example, the Joint Task Force Commander 

Executive Command and Control project was fully executed by a JFCOM 

subordinate command, the Joint Systems Integration Command, and the 

Command and Control on the Move project was partially executed by this

command as well. 

Page 8 GAO-06-240R Limited Acquisition Authority
JFCOM has experienced two challenges in implementing LAA: locating 

and obtaining funding to move the project through the process, and 

arranging for the sustainment of the LAA products once they have been 

fielded. Our work has shown that assessing the effectiveness and utility of

the capabilities after they have been fielded has also been a challenge. 

Challenges in 

Implementing LAA 

Funding LAA Projects and 

Sustaining LAA Products 

Since LAA is an authority, not a program, it does not have budgeted funds.

After an LAA proposal is evaluated and approved by the JFCOM 

commander, JFCOM LAA staff must locate and obtain funding in order to

execute the project. According to JFCOM officials, this is accomplished by 

contacting various organizations to determine if they are able to provide 

funds to support it. 

While the search for funding provides incentives for coordination and 

keeping projects austere, it also increases the length of time it takes to 

field the capability. For example, it took about 17 months to field the Joint

Precision Air Drop System 2,000 Pounds. Seven months (40 percent) of 

this time were required to locate and obtain the funding. It also took 

several months to locate and obtain funding for the Joint Translator 

Forwarder-Rapid Attack Information Dissemination Execution Relay-Joint 

Blue Force Situational Awareness project. The proposal for this project 

was originally submitted in fiscal year 2004, and two funding sources were 

identified. However, one of these sources was unable to provide its share 

of the funding in fiscal year 2004 as initially planned. Consequently, the 

project was put on hold for about a year until fiscal year 2005 when it 

could be fully funded. The capability was fielded about 6 months after 

funding was obtained. Similarly, the Simultaneous 2-Way Speech 

Translation project is now on-going, but it has not been funded. JFCOM 

staff is searching for funding to execute it. 

When locating funding for an LAA project proved especially difficult, 

JFCOM funded all or part of the LAA project itself by offsetting funds from 

its own programs. For example, JFCOM contributed funds to the Change 

Detection Work Station, and fully funded the Command and Control on 

the Move and Joint Task Force Commander Executive Command and 

Control projects. JFCOM officials commented that the loss of funds had a 

negative impact on the donor programs. 

LAA does not provide the authority for product sustainment after 

deployment, yet capabilities fielded under LAA nonetheless must be 

sustained in the field. According to JFCOM, product sustainment is 

covered by operations and maintenance authority, which LAA does not 

include. Therefore, once a capability has been acquired under LAA, 

Page 9 GAO-06-240R Limited Acquisition Authority
JFCOM tries to find an organization—-such as a combatant command, 

service, defense agency, or program of record—to adopt it for short- and 

long-term sustainment. Although a system fielded under LAA typically

belongs to the combatant command that took custody of it, the command 

may not have funds readily available to pay for the sustainment costs. 

JFCOM officials commented that the timing of the DOD budget cycle is a 

primary factor for organizations dealing with the sustainment issue. LAA 

capabilities are acquired rapidly in response to urgent and emergent 

needs, and typically fall outside the timeframes of the normal DOD 

budgeting cycle. As a result, organizations usually have not budgeted for 

an LAA project or sustainment of an LAA product. There is often a waiting 

period until sustainment of the product can be included in the 

organization’s next budget cycle. 

Thus far, JFCOM has used its own operations and maintenance funding 

authority and funds to provide short-term sustainment during the “bridge” 

period while LAA projects are awaiting adoption by another organization. 

For example, in fiscal year 2005, the Joint Systems Integration

Command—one of JFCOM’s subordinate commands—funded the 

sustainment costs of the Joint Task Force Commander Executive 

Command and Control project as well as the Command and Control on the 

Move project. JFCOM has negotiated long-term sustainment plans in place 

for four of the five fielded LAA capabilities. For example, the Change 

Detection Work Station will be integrated into a service program of record 

in fiscal year 2009 and the Command and Control on the Move project in 

fiscal year 2006. However, JFCOM is still searching for a program or 

organization to adopt the Joint Task Force Commander Executive 

Command and Control capability in fiscal year 2006. 

Assessing the 

Effectiveness and Utility of 

LAA Projects 

Capabilities provided by LAA projects are expected to provide tangible

benefits to the warfighter. For the six LAA projects, the expected benefits

include saving lives, vehicles, aircraft, and equipment; improving 

command and control communication; reducing command and control 

network and information-connection costs; and helping overcome 

shortages of skilled linguists. Expected benefits also include providing 

information on the performance of fielded capabilities to related programs 

of record. 

However, JFCOM has not had a process in place to systematically and 

routinely assess the effectiveness and utility of capabilities after they have 

been fielded, or to capture performance information that can be provided

to other projects and programs. JFCOM has received some positive 

feedback from warfighters about fielded capabilities, but it has been 

Page 10 GAO-06-240R Limited Acquisition Authority
largely limited and anecdotal. For example, positive email messages have

been received from recipients of two LAA products. In some cases more 

concrete, albeit incomplete, performance data have been available. For 

example, according to JFCOM, use of the Joint Task Force Commander 

Executive Command and Control capability substantially reduced 

connection costs. Also, indications are that the new blue-force-tracking 

capability has significantly reduced the time needed to determine red 

targets. 

JFCOM is currently in the process of revising the LAA process and 

procedures to require that LAA proposals include a plan to assess the 

effectiveness of the fielded capabilities. LAA projects will also be required 

to provide that assessment to JFCOM. 

The Department of Defense had no comments on a draft of this report. 

To determine how JFCOM has used LAA during fiscal years 2004 and 2005, 

we obtained information on and documentation for all LAA projects from 

JFCOM, located in Norfolk, Va. We also interviewed JFCOM officials, and 

officials in the Office of the Secretary of Defense for Acquisition, 

Technology, and Logistics, Defense Procurement and Acquisition Policy; 

and in the Joint Staff, Force Structure, Resources, and Assessment 

Directorate (J8), both located in Arlington, Va. To describe the policies, 

processes, and procedures for LAA, we obtained and analyzed the LAA 

directive and instruction that JFCOM developed and issued in July 2005, 

and interviewed JFCOM officials about them. We also obtained and 

analyzed information on how these policies and processes are actually 

implemented. To identify the challenges that JFCOM has faced in 

implementing LAA, we interviewed JFCOM officials and analyzed 

documentary information. We did not obtain information from other 

organizations significantly involved in JFCOM’s use of its LAA, such as the 

various organizations that JFCOM has leveraged and partnered with for 

LAA projects or combatant commands receiving LAA products. 

We conducted our work from June to November 2005 in accordance with 

generally accepted government auditing standards. 

Agency Comments 

and Our Evaluation 

Scope and 

Methodology 

We plan to provide copies of this report to the Secretary of Defense; the 

Commander of JFCOM; and interested congressional committees. We will

also make copies available to others upon request. In addition, the report

will be available at no charge on the GAO web site at http://www.gao.gov. 

Page 11 GAO-06-240R Limited Acquisition Authority
If you or your staff has any questions concerning this report, please 

contact me at (202) 512-4841. Key contributors to the report include D. 

Catherine Baltzell, Joseph E. Dewechter, Bonita J.P. Oden, Sylvia Schatz,

and Greg Campbell. 

Paul L. Francis 

Director 

Acquisition and Sourcing Management 

Paul L. Francis 

Director 

Acquisition and Sourcing Management 

 (120469) Page 12 GAO-06-240R Limited Acquisition Authority
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