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USAF Will Buy Bomber Via Rapid Acquisition
By Dave Majumdar
Defense News
April 18, 2011
In an indictment of the Pentagon's normal acquisitions process, the U.S. Air Force says it will buy its next-generation bomber using the kind of battlefield procurement methodology it used to rapidly field the MC-12 Project Liberty surveillance aircraft.
But not everyone is convinced that the new approach is appropriate for a program of the scale and sophistication of a stealth bomber.
The program is intended to design a stealthy, penetrating bomber using mostly mature technologies, then produce 80 to 100 by the mid-2020s.
The effort will use “what we have determined will be a more streamlined management process going forward, where we are using the Rapid Capabilities Office (RCO) to help manage this project,” Air Force Secretary Michael Donley said earlier this month.
Donley said Defense Secretary Robert Gates has approved the decision.
The switch comes after several of the service’s biggest aircraft programs, like the B-2 bomber and F-22 Raptor, delivered its aircraft far later, in far lower quantities, and at far greater cost than planned.
The final straw was the tri-service F-35 Joint Strike Fighter, now projected to wind up five years late and 26 percent over budget, according to a recent Government Accountability Office (GAO) report.
Current and former officials agree the current procurement system is too slow and cumbersome.
“Yes, that is certainly part of it. That is the same reason that [the Secretary of Defense] set up the ISR Task Force and JIEDDO [Joint IED Defeat Organization], because the normal acquisition process simply cannot respond rapidly enough to changing demands,” one former senior official said.
But Gen. James Cartwright, vice chairman of the Joint Chiefs of Staff, said the decision to use RCO was unrelated to problems with the acquisitions process.
“I don’t think so,” Cartwright said. “I think that’s been an Air Force decision because of where they had the expertise.”
He said that much of the service’s procurement talent had been moved into the area of rapid acquisitions over the past few years.
The Air Force could not comment by press time, but a service document from 2008 describes the RCO staff as the “A-team” of the service’s acquisition’s corps.
But Cartwright said the rapid-acquisition process was inappropriate for the new bomber, which is supposedly going to use largely mature technologies, yet which is certainly one of the service’s most complex new programs.
“You don’t want that kind of program in rapid acquisition,” Cartwright said. “That’s clearly a program that going to be multiple years in building, but also with a level of sophistication that is probably inappropriate for rapid acquisitions … They are trying to figure out how they’re going to handle this.”
RCO History
The RCO has never managed a program of such duration or complexity.
Created in 2003 to react to changing battlefield conditions in Iraq and Afghanistan, the office’s methods are modeled on commercial practices. It looks for open architecture “plug-and-play” systems that can be moved to different weapons with ease, uses quickly built prototypes to guide thinking, and prefers to upgrade components rather than develop and buy parts anew. It reaches out to smaller contractors with innovative ideas, and often accepts so-called 80 percent solutions.
Much of the RCO’s work is classified. Known RCO projects include the air defense system around Washington, and a smaller-scale Norwegian air defense system. Its most complex known projects so far are the MC-12 Project Liberty aircraft and X-37B space plane.
Paul Kaminski, who chairs the Pentagon’s Defense Science Board (DSB), said the acquisition system isn’t broken, yet he agreed with the decision to have the RCO manage the bomber program.
“If the program proceeds, you may see some adjustments” in the way the Air Force runs it, he said.
“The size and nature of the program during the earlier phases will be a little more limited, but the Rapid Capabilities Office has done some sizable procurements and has done pretty well on them,” Kaminski said.
He said the decision to give the bomber program to the RCO is consistent with a recommendation from the DSB’s summer 2010 study: build a basic aircraft that can be easily upgraded, instead of a full-featured plane with every capability. This block approach requires built-in nuclear hardening, solid systems engineering, and an open architecture that can accommodate upgrades, he said.
Air Force officials aren’t publicly discussing whether the bomber program would take a block approach.
But Kaminski noted that the Air Force in January announced a block approach to satellite programs, dubbed Evolutionary Acquisition For Space Efficiency (EASE).
The bomber’s fielding date in the mid-2020s is not unreasonable, but likely requires a flying prototype or at least wind-tunnel models to be ready within six or seven years, Kaminski said.
Jacques Gansler, the Pentagon procurement chief during the Clinton administration, also applauded the move to the RCO.
“It’s very clear that the system needs to be accelerated even for the next-generation stuff like the bomber,” he said.
Part of the effort is making sure requirements are well understood, and cost and schedule both treated as requirements.
“If you do that, then you’ll undoubtedly be driven to trying to use more existing technology, there’ll be a push in a sense, based on that requirement for schedule and cost being considerations, to having more of an evolutionary acquisitions process,” he said.
How Much Oversight?
Marvin Sambur, a former Air Force procurement chief, said Donley’s approach has merit. But he said one potential drawback is that oversight by the Office of the Secretary of Defense (OSD) might inadvertently slow down the process.
The OSD would have to consciously take a hands-off approach to oversight, which would be difficult given the size and scope of the bomber program, he said.
Pentagon procurement czar Ashton Carter has said DoD wants a tight leash on the budget and schedule of the program, which is the service’s most prominent new effort.
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Pentagon Overhauling Requirements Process
By Amy Butler
Aviation Week
April 15, 2011
COLORADO SPRINGS, Colo. — Vice Chairman of the Joint Chiefs of Staff Gen. James Cartwright says the Pentagon is beginning the long process of revamping its weapon system requirements formulation process because the current system “has been gamed to death” by industry and the military services.
The Joint Capabilities Integration and Development System has been in use for less than a decade. It is the process by which military services must vet their requirements and get buy-in from their sister services before procuring weapons. “You guys have figured out how to game it,” Cartwright told an audience assembled at the 27th National Space Symposium here April 14.
He intends for the revamped system to include three tiers of capabilities based on the urgency of need and time to fielding. The first tier would be for systems needed urgently, and these capabilities would require expedited attention and procurement. The second would be for midterm needs and could allow for more development work. The last would be for long-term needs, and this tier would more closely align with riskier, more sophisticated and expensive programs.
Cartwright says he hope this system would enable Pentagon officials to more quickly buy new technology and deploy it to the field.
Maj. Gen. John Hyten, director of Air Force space acquisition programs, says this could help buy satellites based on varying levels of technological risk rather than relying on single, highly risky designs to provide services around the globe.
Management, procurement and operational efficiencies will be required in each tier, Hyten adds, not just for the quick-reaction satellites developed for near-term needs.
Requirements discipline is seen as essential for the Pentagon to curb spending and complement efforts to reform acquisition at the Pentagon.
(Archives)