11.4 Transition Process Overview

Many people think of transition to production as that period just prior to Low Rate Initial Production (LRIP). However, transition from development to production is not a single event with a readily identifiable starting point in the acquisition process. The transition process incorporates many interrelated and interdependent activities, that if not managed correctly, can cause significant cost growth and schedule delays. The lack of planning or poor coordination among the various functions will result in the lack of integration and could lead to conflicts. For example, if engineering is still making changes late in EMD, manufacturing may have to change their manufacturing plans and processes.

Figure 11-3 Acquisition Processes for Major Weapon Systems

In addition to the many functional activities identified above that play a role in transition, transition to production also includes the transition of the products form and where that form is produced. Figure 11-4, shows that the environments in which products are developed, produced and tested change over time. These environments are discussed in detail in other chapters where we discuss Technology Readiness Levels (TRLs) and Manufacturing Readiness Levels (MRLs), but for now understand that there is a difference between a laboratory environment, a relevant environment and other production environments and the transition from one environment to another environment needs to be carefully managed.

Figure 11-4 Development/Production Environments

The environments that produce our products include the following features or characteristics:

Table 11-1 Technology and Manufacturing Considerations

There are two approaches to the acquisition process. The current approach is defined in DOD 5000-series documents. These documents spell out the various acquisition processes that programs must follow. But they do not describe the "industrial process," nor do they provide insight on the management and control of industrial processes and their related details that can either make or break a project.

The industrial process is a technical process focused on the design, test, and production of a product. And the industrial process will fail or falter if these processes are not performed in a highly disciplined manner. Design, test, and production processes are a continuum of interrelated and interdependent disciplines. A failure to perform well in one area will result in a failure to do well in all areas. Poor management of the industrial process can lead to late fielding of a system that costs more and does not perform as expected. The V-22 Osprey had problems in part because the industrial processes were not managed effectively.

The second approach is to understand the best practices associated with the industrial processes and then blend the management of these best practices into the acquisition processes. This section will outline the current acquisition processes and identify transition to production activities and opportunities. Section 11-5 will outline two documents that attempt to describe the industrial processes that must be managed and controlled in order to minimize the transition to production risks. These two documents are DOD 4245.7-M, Transition from Development to Production, and NAVSO P-6071, Best Practices.

While this chapter focuses on the V-22 it is important to recognize that the acquisition framework in 1980 was considerably different than the framework today (2011) with only the Production and Deployment Phase having the same name. Thus when we refer to Full Scale Development (FSD) you can substitute Engineering and Manufacturing Development.

Figure 11-5 Old and New Acquisition Framework Chart

The purpose of the MSA phase is to assess potential materiel solutions and to satisfy the entrance criteria for the next program milestone. This phase is the first opportunity to influence systems supportability and affordability by balancing operational requirements against technology opportunities, production costs, and sustainment requirements. During this phase, various alternatives are analyzed in order to select a materiel solution and to fill any technology gaps. This phase includes developing the Technology Development Strategy (TDS), identifying and evaluating manufacturing feasibility, and assessing affordable product support alternatives to meet operational requirements and associated risks. The ability to transition from the MSA phase to the Technology Development (TD) phase requires the accomplishment of many activities:

• Assess all potential solutions for a stated need;
• Develop a preliminary acquisition strategy;
• Develop a Technology Development Strategy (TDS);
• Develop program goals for any needed development of critical enabling technologies;
• Conduct an Analysis of Alternatives (AoA) leading to selection and approval of a materiel;
• Develop a draft Capabilities Development Document (CDD);
• Develop a Systems Engineering Plan (SEP);
• Develop Initial Support and Maintenance Concepts; and
• Assess Manufacturing Feasibility.

The MSA phase is critical for establishing the trade space that will be available to the Program Manager in subsequent phases. User capabilities are examined against technologies, both mature and immature, to determine manufacturing feasibility and alternatives to fill user needs. Once the requirements have been identified, a gap analysis should be performed to determine the additional capabilities required to implement the manufacturing approach and support concept and its drivers within the trade space.

Transition involves the maturing of the design and the production conditions. During the MSA phase, the item or component was probably produced in a laboratory environment, using highly skilled engineers and craftsmen. Some of the materials, manufacturing processes, and skills may be new, requiring manufacturing maturation.

The purpose of the Technology Development (TD) Phase is to reduce technology risk and to determine the appropriate set of technologies to be integrated into the system. The TD phase conducts competitive prototyping of system elements, refines requirements, and develops the functional and allocated baselines of the end-item system configuration. The objective of the TD phase is the buying down technical risk and developing a sufficient understanding of a solution in order to make sound business decisions on initiating a formal acquisition program and moving into the Engineering and Manufacturing Development Phase.

The TD phase develops and demonstrates prototype designs to reduce technical risk, validate designs, validate cost estimates, evaluate manufacturing processes, and refine requirements. Based on refined requirements and demonstrated prototype designs, Integrated Systems Design of the end-item system can be initiated. The ability to transition from the TD phase to the Engineering and Manufacturing Development (EMD) phase requires the accomplishment of many activities and outputs:

• Test and Evaluation Master Plan;
• Risk Assessment;
• Systems Engineering Plan;
• Programmatic Environment, Safety, and Occupational Health Evaluation;
• National Environmental Policy Act Compliance Schedule;
• Program Protection Plan;
• Technology Readiness Assessment;
• Validated System Support and Maintenance Objectives and Requirements; and
• Evaluate Manufacturing Processes.

The TD phase is critical for establishing that the program's technology and manufacturing processes have been assessed and demonstrated in a relevant environment. Transition involves the maturing of the design and the production conditions. During the TD phase, the component transitions out of the laboratory and into a production relevant environment. This is an environment with some production realism (e.g. production facilities, personnel, tooling, processes, materials, etc.), and programs have the ability to meet the cost, schedule, and performance requirements based production of prototypes. Then the system transitions out of a production relevant environment and into a production representative environment for the EMD phase.

EMD is where a system is developed, designed and validated before going into production. The EMD Phases starts after a successful Milestone B review and is considered the formal start of a program. The goal of EMD is to complete the development of a system, complete full system integration, develop affordable and executable manufacturing processes, complete system fabrication, and test and evaluate the system before proceeding into the Production and Deployment Phase. The purpose of the EMD Phase is to:

• Develop a system or increment of capability;
• Design-in critical supportability aspects to ensure materiel availability with particular attention to reducing the logistics footprint;
• Integrate hardware, software, and human systems;
• Design for producibility;
• Ensure affordability and protection of critical program information;
• Demonstrate system integration, interoperability, supportability, safety, and utility;
• Ensure operational supportability with particular attention to minimizing the logistics footprint; and
• Demonstrate reliability, availability, maintainability, and sustainment features are included in the design of a system.

Transition involves the maturing of the technologies and design so that by the Critical Design Review (CDR) the design is stable with relatively few changes coming after CDR. During the early part of the EMD phase, the system was probably produced in a production representative. Then in the second half of EMD, the systems production transitions into a pilot line environment.

The purpose of the Production and Deployment Phase is to achieve an operational capability that satisfies mission needs. Operational test and evaluation determines the effectiveness and suitability of the system. The Production and Deployment Phase should accomplish the following:

• Update Product Baseline;
• Update Test and Evaluation Plan;
• Conduct a Risk Assessment;
• Update the Life-cycle Sustainment Plan;
• Ensure Environmental (NEPA and ESOH) Compliance;
• Update the Systems Engineering Plan;
• Provide Inputs to Cost and Manpower Estimate;
• Update System Safety Analyses to include finalizing hazard analyses; and
• Demonstrate Manufacturing Processes.

Entrance into EMD depends on having acceptable performance in developmental test and evaluation and operational assessment; mature software capability; no significant manufacturing risks; manufacturing processes under control; an approved ICD; an approved Capability Production Document (CPD); a refined integrated architecture; acceptable interoperability and operational supportability; and demonstration that the system is affordable, fully funded, and properly phased for rapid acquisition.

A PM should understand that weapon systems acquisition is an industrial process which demands both an understanding of industrial processes and the implementation of basic engineering disciplines and their control mechanisms. Transitioning from development into production requires an acquisition strategy that places specific demands on engineering design, test, manufacturing and logistics. The program needs to emphasize the need for design stability, maturing of new technologies, and the proofing of the manufacturing process. At the production phase, large financial commitments are made based on the detailed planning of previous phases. The transition is now a highly visible, highly reactive time that is characterized by emphasis on preparation for production and change management.