4.2.2. Pre-Materiel Development Decision

DEFENSE ACQUISITION GUIDEBOOK
Chapter 4 -- Systems Engineering

4.2.2. Pre-Materiel Development Decision

4.2.2. Pre-Materiel Development Decision

The objectives of the pre-Materiel Development Decision (MDD) efforts are to obtain a clear understanding of user needs, identify a range of technically feasible candidate materiel solution approaches, consider near-term opportunities to provide a more rapid interim response, and develop a plan for the next acquisition phase, including the required resources. This knowledge supports the Milestone Decision Authority’s (MDA) decision to authorize entry into the acquisition life cycle and pursue a materiel solution. An additional objective is to characterize trade space, risks, and mission interdependencies to support the start of the Analysis of Alternatives (AoA).

Policy in this area comes from two perspectives: the Joint Capabilities Integration and Development System (JCIDS) defined in CJCSI 3170.01 and the Defense Acquisition System (DAS) defined in DoDD 5000.01.

DTM 10-017, “Development Planning to Inform Materiel Development Decision (MDD) Reviews and Support Analyses of Alternatives (AoA)”, issued September 2010, introduced specific policy on development planning in support of defense acquisition.

Development planning (DP) encompasses the engineering analysis and technical planning activities that provide the foundation for informed investment decisions on the path a materiel development follows to effectively, affordably, and sustainably meet operational needs. Development planning activities are initiated prior to the Materiel Development Decision, continue throughout the Materiel Solution Analysis phase, and eventually transition to the program environment.

Attention to critical systems engineering (SE) processes and functions, particularly during early phases in acquisition, is essential to ensuring that programs deliver capabilities on time and on budget. The effective execution of pre-MDD SE efforts provides the foundation for user-driven requirements and technically feasible solution options that ensure an executable program. At MDD, the MDA not only decides whether an investment is made to fill the capability gap but also determines the fundamental path the materiel development will follow. This decision should be based on effective development planning.

An important aspect of the pre-MDD effort is narrowing the field of possible solutions to a reasonable set that is analyzed in the AoA. Early recognition of constraints, combined with analysis of technical feasibility, can eliminate many initial ideas because they lack the potential to meet the need in a timely, sustainable, and cost-effective manner. Conversely, the range of alternatives analyzed in the AoA are chosen from a sufficiently broad solution space. Whenever possible, the Systems Engineer should try to engage with the end user before the Initial Capabilities Document (ICD) and associated operational architecture is validated by the Joint Requirements Oversight Council (JROC) (see DAG section 4.3.12. Stakeholder Requirements Definition Process).

Studies have found that “programs that considered a broad range of alternatives tended to have better cost and schedule outcomes than the programs that looked at a narrow scope of alternatives.” (Reference GAO-09-665 Analysis of Alternatives, page 6.)

The work performed in this time frame should be well documented so the Program Manager and Systems Engineer, when assigned, can benefit from the mutual understanding of the basis of need (requirements) and the art of the possible (concepts/materiel solutions). To achieve these benefits, the Systems Engineer should proactively collaborate with the Science and Technology (S&T) and user communities.

Roles and Responsibilities

Often there is no assigned Program Manager or Systems Engineer at this point in the weapon system’s life cycle. Instead, a designated Service representative is orchestrating and leading the preparations for MDD. This leader, motivated by the entrance criteria for MDD, is responsible for synthesizing the necessary information to satisfactorily address the four policy evidence needs stated in DTM 10-017. For a more detailed discussion of development planning policy, refer to the white paper on the pre-MDD Activities.

The designated Service representative should make use of appropriate models and simulations (DAG section 4.3.19.1 Modeling and Simulation) to develop required MDD evidence. The designated Service representative also should consider issuing a Request for Information (RFI) to industry to help identify and characterize alternative solutions.

Inputs

Table 4.2.2.T1 summarizes the primary inputs and technical outputs associated with this part of the life cycle. Unlike the sections that follow, this pre-MDD period is the bridge between JCIDS and the DAS. It is the period before the pre-systems acquisition period of the DAS.

Table 4.2.2.T1. Inputs Associated with Pre-MDD

The MDD review requires an ICD that represents an operational capability need validated in accordance with CJCSI 3170.01. The Joint Staff provides this document, which is generally the output of a Capability-Based Assessment (CBA) or other studies. The designated Service representative should have access to both the ICD and supporting studies. Other technical information (such as models and simulations) may be useful for understanding both the need and its context. The S&T community can contribute pertinent data and information on relevant technologies, prototypes, experiments, and/or analysis. An example is available of how a program may provide evidence at the MDD review to support the MDA decision.

Activities

Figure 4.2.2.F1 provides the end-to-end perspective and the integration of SE technical reviews and audits across the acquisition life cycle.

Figure 4.2.2.F1. Weapon System Development Life Cycle

During pre-MDD, SE activities focus on

• Achieving an in-depth understanding of the operational capability gaps defined in the ICD and identifying the sources of the gap(s) which, if addressed by a materiel solution, could achieve the needed capability
• Identifying an appropriate range of candidate materiel solutions from across the trade space to meet the need
• Identifying near-term opportunities to provide a more rapid interim response to the capability need
• Working with the S&T community (across Government, industry, and academia) as well as other collaborators to build the technical knowledge base for each candidate materiel solution in the AoA Guidance to include experimentation and prototyping
• Analyzing trade space to determine performance versus cost benefits of potential solutions
• Planning for the technical efforts required during the next phase

Outputs and Products

This effort ends after a successful MDD review in which the MDA approves entry into the Defense Acquisition System. This decision is documented in a signed Acquisition Decision Memorandum (ADM), which specifies the approved entry point, typically the Materiel Solution Analysis (MSA) phase. Outputs of pre-MDD efforts provided in Table 4.2.2.T2 also include approved AoA Guidance and an AoA Study Plan, which should be informed by SE.

Table 4.2.2.T2. Technical Outputs Associated with Pre-MDD

All potential materiel solutions pass through an MDD before entering the DAS. However, the MDA may authorize entry at any point in the acquisition life cycle based on the solution’s technical maturity and risk. Technical risk has several elements: technology risk, engineering risk, and integration risk. If the Service-recommended entry point is beyond the MSA phase, for example part way through the Technology Development (TD) phase, the program provides evidence that all MSA and TD phase-specific entrance criteria and statutory requirements are met, and that the solution’s technical maturity supports entry at the point in the phase being proposed. Emphasis should be placed on the soundness of supporting technical information and plans in order to inform the MDA’s decision, as opposed to which documents may or may not be complete.

As the next section explains, the MSA phase is made up of more than an AoA; it includes technical tasks to determine the preferred materiel solution based on the AoA results and technical tasks to prepare for the initial milestone review. Therefore, the technical plan and budget presented at the MDD should reflect the full range of activities required in the next phase.

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