4.2.3. Materiel Solution Analysis Phase

DEFENSE ACQUISITION GUIDEBOOK
Chapter 4 -- Systems Engineering

4.2.3. Materiel Solution Analysis Phase

4.2.3. Materiel Solution Analysis Phase

The objective of the Materiel Solution Analysis (MSA) phase is to select and adequately describe a preferred materiel solution to satisfy the phase-specific entrance criteria for the next program milestone designated by the Milestone Decision Authority (MDA). Usually, but not always, the next milestone is a decision to invest in technology maturation and preliminary design in the Technology Development (TD) phase. The systems engineering (SE) activities in the MSA phase result in several key products. First, a system model and/or architecture is developed that captures operational context and envisioned concepts, describes the system boundaries and interfaces, and addresses operational and functional requirements. Second, a preliminary system performance specification is developed that defines the performance of the preferred materiel solution. Third, the Systems Engineer advises the Program Manager on what is to be prototyped, why, and how.

During the MSA phase, the program team identifies a materiel solution to address user capability gaps partially based on an Analysis of Alternatives (AoA) (i.e., analysis of the set of candidate materiel solutions) led by the Director, Cost Analysis and Program Evaluation (CAPE) and conducted by an organization independent from the Program Manager. Once the Service sponsor selects a preferred materiel solution, the program team focuses engineering and technical analysis on this solution to ensure development plans, schedule, funding, and other resources match customer needs and match the complexity of the preferred materiel solution. SE activities should be integrated with MSA phase-specific test, evaluation, logistics, and sustainment activities identified in DAG Chapter 9 Test and Evaluation and Chapter 5 Life-Cycle Logistics.

This phase has two major blocks of activity: (1) the AoA and (2) the post-AoA operational analysis and concept engineering to prepare for a next program milestone designated by the MDA (see Figure 4.2.3.F1).

The AoA team considers a range of alternatives and evaluates them from multiple perspectives as directed by the AoA Guidance and AoA Study Plan. Engineering considerations including technical risk should be a component of the AoA Guidance and be addressed in the AoA Study Plan.

Figure 4.2.3.F1. Activities in Material Solution Analysis Phase

The objective of the AoA is to analyze and characterize each alternative (or alternative approach) relative to the others. The AoA does not result in a recommendation for a preferred alternative; it provides information that the Service sponsor uses to select which materiel solution to pursue. The Systems Engineer may participate in the AoA to help analyze performance, feasibility, and to optimize alternatives. Using the AoA results, the Service sponsor may conduct additional engineering analysis to support the selection of a preferred materiel solution from the remaining trade space of candidate materiel solutions. After choosing the preferred materiel solution, the Service sponsor matures the solution in preparation for the next program milestone designated by the MDA.

After the AoA, program systems engineers establish the technical performance requirements consistent with the draft Capability Development Document (CDD), required at next program milestone designated by the MDA, assuming it is Milestone A. These requirements form the basis for the system performance specification placed on contract for the TD Phase. These requirements also inform plans to mitigate risk in the TD phase.

During MSA, several planning elements are addressed to frame the way forward for the MDA’s decision at the next program milestone. SE is a primary source for addressing several of these planning elements. The planning elements include:

• Capability need, architecture
• System concept, architecture
• Key interfaces (including external interfaces and dependencies)
• Acquisition approach
• Engineering/technical approach/strategy
• Test and evaluation approach/strategy
• Program management approach
• External dependencies/agreements
• Schedule
• Resources
• Risks

See DAG section 4.3.2. Technical Planning Process. These planning elements are documented in various program plans such as the Technology Development Strategy (TDS), Test and Evaluation Strategy (TES), Program Protection Plan (PPP), next-phase Request for Proposal (RFP), and the Systems Engineering Plan (SEP). The SEP describes the SE efforts necessary to provide informed advice to these other planning artifacts (see the SEP Outline).

SE provides, for example, the technical basis for TD phase planning and execution, including identification of critical technologies, development of a competitive prototyping strategy, and establishment of other plans that drive risk-reduction efforts. This early SE effort lays the foundation for the TD phase contract award(s) and preliminary designs, which confirm the system’s basic architecture.

Roles and Responsibilities

In addition to the general responsibilities identified in DAG section 4.1.4. Engineering Resources, the Program Manager focuses on the following MSA activities, which rely on and support SE efforts:

• Prepare for and support source selection activities for the upcoming phase solicitation and contract award
• Support the requirement community with development of the draft CDD, assuming the next phase is TD
• Develop the TDS, which incorporates necessary risk-reduction activities
• Staff the program office with qualified (trained and experienced) systems engineers

In addition to the general roles and responsibilities described in DAG section 4.1.4. Engineering Resources, during this phase it is the Systems Engineer’s responsibility to:

• Lead and manage the execution of the technical activities in this phase
• Measure and track program technical maturity
• Identify technologies that should be included in an assessment of technical risk
• Perform trade studies
• Support preparations for the RFP package
• Develop the system performance specification. See DAG section 4.3.7 Configuration Management Process. A particular program's naming convention for specifications should be captured in the SEP and other plans and processes tailored for the program.
• Ensure integration of key design considerations into the system performance specification
• Develop technical approaches and plans, and document them in the SEP
• Ensure the phase technical artifacts are consistent and support objectives of the next phase

Inputs

Table 4.2.3.T1 summarizes the primary inputs associated with this pre-systems acquisition part of the life cycle (see DoDI 5000.02). The table assumes the next phase is TD, but most of the technical outputs would be applicable going into any follow-on phase.

Table 4.2.3.T1. Inputs Associated with MSA Phase

The ICD, AoA Guidance, and AoA Study Plan should be available prior to the start of the MSA phase. Results of other related analyses may be available, for example from the Capability Based Assessment (see DAG section 4.3.10. Stakeholder Requirements Definition Process) or other prior analytic and/or prototyping efforts conducted by the S&T community.

Activities

The MSA phase activities begin after a favorable MDD review has been held (see DAG section 4.2.2. Pre-Materiel Development Decision) and end when the phase-specific entrance criteria for the next program milestone, designated by the MDA, have been met. Figure 4.2.3.F2 provides the end-to-end perspective and the integration of SE technical reviews and audits across the acquisition life cycle.

Figure 4.2.3.F2. Weapon System Development Life Cycle

Referring back to Figure 4.2.3.F1, which shows the major blocks of technical activities in the MSA phase:

• Conduct AoA. Includes all activities and analyses conducted by the AoA Study team under the direction of the Senior Advisory Group / Executive Steering Committee (SAG/ESC) and CAPE, or Service equivalent. Concludes with a final ESC/SAG; produces AoA Report. Systems engineers should support this activity, though in DoD policy the AoA is to be conducted by an organization independent from the Program Manager.
• Perform Analysis to Support Selection of a Preferred Materiel Solution. Includes all engineering activities and technical analysis performed to support Service selection of the preferred materiel solution by balancing cost, performance, schedule, and risk.
• Perform Operational Analysis on Preferred Materiel Solution. Supports the definition of the performance requirements in the operational context, Functional Capabilities Board (FCB) review, and the development of the draft CDD (see CJCSI 3170.01 Joint Capabilities Integration and Development System (JCIDS) and DAG section 4.3.10. Stakeholders Requirements Definition Process). The Systems Engineer should support the operational requirement/user/operational test community to ensure the concept of operations (CONOPS) is detailed enough to verify and validate system performance and operational capability. This activity could include the development of design reference missions/use cases that assist in the verification and validation process. Through analysis, the Systems Engineer also helps to identify key technology elements, determine external interfaces, establish interoperability requirements, and identify critical program information.
• Perform Engineering and Technical Analysis on Preferred Materiel Solution. This includes all engineering activities and technical analysis performed on the Service-selected preferred materiel solution in support of the development and maturation of a materiel solution concept, associated system specification, and technical plans for the next phase.
• Establish Program Framework and Strategies. All activities to converge on the overarching strategies and plans for the acquisition and sustainment of the system. Attention should be given to identifying and documenting agreements with external organizations. This documentation should include, for example, the contributions of S&T organizations and plans for transitioning technology into a program.
• Prepare for Initial Review Milestone and Next Phase. Includes all activities to compile technical and programmatic analysis and plans to meet the entrance criteria for the next program milestone designated by the MDA. See DoDI 5000.02 for phase exit criteria and PDUSD(AT&L) memorandum, "Improving Milestone Process Effectiveness."

The technical review typically conducted in the MSA phase is the Alternative Systems Review (ASR) (see DAG section 4.2.9. Alternative Systems Review).

For a more detailed discussion of MSA phase activities, refer to the white paper on the MSA Activities Model.

Outputs and Products

The knowledge gained during this phase, based on both the AoA and other analyses, should provide confidence that a technically feasible solution approach matches user needs and is affordable with reasonable risk, see Table 4.2.3.T2. Technical outputs associated with technical reviews in this phase are addressed later in this chapter.

Table 4.2.3.T2. Technical Outputs Associated with MSA Phase

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