JOINT PROGRAM MANAGEMENT HANDBOOK - AcqNotes

1 JOINTPROGRAM MANAGEMENTHANDBOOKPUBLISHED BYDEFENSE ACQUISITION UNIVERSITY PRESSFORT BELVOIR, VA 22060-5565 DEFENSE ACQUISITION UNIVERSITYiJOINT PROGRAMMANAGEMENTHANDBOOKJULY 2004 THIRD EDITIONPUBLISHED BY THEDEFENSE ACQUISITION UNIVERSITY PRESSFORT BELVOIR, VIRGINIA iiiiiPREFACEThis 2004 JOINT PROGRAM MANAGEMENT HANDBOOK , Third Edition, up-dates the 1996 Second HANDBOOK provides a quick guide to assist experienced acquisi-tion professionals assigned to a JOINT acquisition PROGRAM . The viewsof experienced JOINT PROGRAM managers are quoted within this guide togive practical advice to the reader. Lessons learned and practical guide-lines derived from JOINT PROGRAM Working Group deliberations (No-vember 2003) are also included. If you are new to the acquisition pro-cess, you should first read DAU s Introduction to Defense AcquisitionManagement, 6th Edition (DAU Press, November 2003), to gain afirm grasp of acquisition PROGRAM implications of the JOINT Capabilities Integration andDevelopment System, outlined in Chairman, JOINT Chiefs of Staff In-struction (CJCSI) of 12 March 2004 and selected provisionsof the 12 May 2003 Department of Defense 5000 Series Directive andInstruction, are highlighted herein.

2 The JOINT PROGRAM implications ofCJCSI of 20 November 2003 ( Interoperability and Sup-portability ) are also revisions are encouraged from readers of this your convenience, a postage-paid customer feedback form is lo-cated at the back of this HANDBOOK . If you have suggestions, pleasetake a few minutes to fill it out and help us improve this B. CochraneDirectorCenter for PROGRAM ManagementCurricula Development and Support CenterDefense Acquisition UniversityivACKNOWLEDGMENTSThe DAU Director, Center for PROGRAM MANAGEMENT , wishes to thankthe following personnel and organizations for their significant supportand assistance in developing and fielding this HANDBOOK : The faculty and staff of DAU s Curricula Development andSupport Center for their content input. The OSD JOINT PROGRAM Working Group (JPWG) led by Wiggins which provided current JOINT PROGRAM issues,impacts of those issues, and recommended action to mitigatethe impacts.

3 The JOINT Tactical Radio System (JTRS) PROGRAM Director,Colonel Steven A. MacLaird, USAF, and the JTRS ProgramOffice Staff for contributing PROGRAM information and ideasfor use in this HANDBOOK . The JOINT Lethal Strike (JLS) PROGRAM Office for contributingthe JOINT Air to Surface Standoff Attack Missile (JASSM)Memorandum of Agreement (MOA) to use as an example inthis HANDBOOK . Bill Bahnmaier, Col, USMC (Ret), for his tireless dedicationto making this publication a reality. The DAU Press Mr. Eduard Boyd, Director; Mrs. CollieJohnson, Executive Editor, for editing; Visual information Spe-cialists Mrs. Debbie Gonzalez for copyediting, Mrs. KaySondheimer for desktop publishing and editing, and Battle for printing process OF CONTENTSC hapter 1 JOINT PROGRAM MANAGEMENT 1 OSD JOINT PROGRAM Working Group Findings .. 2 Rational for JOINT 2 Life Cycle MANAGEMENT .

4 4 Variations of JOINT Programs .. 5 Chapter 2 MANAGEMENT Arrangements forJoint 7 JOINT PROGRAM Executive Office .. 7 Charters and Memorandums of Agreement .. 7 Content of the Memorandum of Agreement .. 9 Scope .. 9 PROGRAM 9 Roles/ 10 12 Funding Authority .. 12 Arbitration of 12 Public Affairs .. 13 Component Manning .. 13 Review Procedures .. 14 Suggested JOINT Operating Procedure (JOP) Format .. 14 Chapter 3 PROGRAM MANAGEMENT Issues in aJoint 15 PROGRAM Office Administration and Personnel .. 16 Analysis of Alternatives (AoA) .. 17 Cost Analysis Requirements Description (CARD) .. 17 PROGRAM Funding .. 18 Planning, Programming, Budgeting and Execution(PPBE) Process .. 19 Acquisition PROGRAM Baseline (APB) .. 20viProgram Protection and System Security .. 21 Acquisition Plan (AP) .. 21 Contracting Planning and 22 Request for Proposal (RFP) Preparation.

5 22 Systems Engineering (SE).. 23 Threat 24 Risk MANAGEMENT .. 24 Logistics 25 Integrated Product and Process Development (IPPD) .. 26 Configuration MANAGEMENT (CM) .. 26 Test and Evaluation .. 27 Test and Evaluation Master Plan (TEMP) .. 27 Political 28 Chapter 4 Policy and Oversight Implications forJoint 29 The Law .. 32 Oversight and Review .. 30 Acquisition Categories (ACATs) .. 30 JOINT PROGRAM Oversight 31 information Requirements for Decision Reviews .. 34 Single Document for Milestone Decision Reviews .. 35 MANAGEMENT /Reporting 36 Component and Service Relationships .. 37 Chapter 5 Determining JOINT Military Capability 39 The Sponsor .. 40 Interoperability of IT and NSS .. 41 Global information Grid (GIG) .. 42 information Exchange Requirements (IERs) .. 42 Integrated 42 JOINT Staff, J-6 Interoperability andSupportability Certification.

6 43J-6 Interoperability System 44 Levels of information System Interoperability (LISI).. 44 Net-Ready Key Performance Parameter (NR-KPP) .. 45viiChapter 6 Overview of InteragencyProgram 47 Interagency PROGRAM Office (IPO) .. 48 Interagency Acquisition Considerations/Factors .. 48 Acquisition 49 PROGRAM 49 PROGRAM 49 Requirements 49 Funding 49 Customer 50 Cultural 50 RAND Study Organizational Approaches forInteragency 50 Lead Agent .. 51 System 51 Independent Agent .. 51 JOINT PROGRAM Office (RAND Definition) .. 51 Approaches Versus Evaluation Factors .. 52 Appendix A Summary Findings/Best Practices of theOffice of the Secretary of Defense (OSD) JOINT ProgramWorking A-1 Appendix B Suggested Format for JOINT ProgramManager s B-1 Appendix C Air Force-Navy Memorandum of Agreementfor the JOINT Air-to-Surface Standoff Missile (JASSM) C-1 Appendix D Charter for the XYZ D-1 Customer Feedback FormviiiLIST OF TABLES & FIGUREST able 1-1 JOINT PROGRAM Categories and 6 Figure 4-1 Oversight and Review.

7 35 Figure 4-2 Acquisition MANAGEMENT Reporting Chain .. 36 Figure 5-1 JCIDS Document Flow.. 40 Figure 5-2 Linkages Among Architectural Views .. 43 Figure 5-3 Interoperability Certification 44 Table 6-1 IPO Organizational ApproachesVersus Evaluation Factors .. 52111 JOINT PROGRAM MANAGEMENTINTRODUCTIONP urposeThis HANDBOOK is a guide for the MANAGEMENT of JOINT acquisitionprograms for current and future JOINT PROGRAM personnel. As acomplement to the more general Introduction to Defense Acquisi-tion MANAGEMENT , Sixth Edition (Defense Acquisition University(DAU) Press, November 2003), this HANDBOOK incorporates the per-spectives of current and former JOINT PROGRAM Managers (PMs), in-cluding those who were members of the Office of the Secretary ofDefense (OSD)-sponsored JOINT PROGRAM Working Group (JPWG),which met at DAU in November Interim Defense Acquisition Guidebook1 defines a JOINT PM as.

8 Any defense acquisition system, subsystem, component, or tech-nology PROGRAM that involves formal MANAGEMENT or fundingby more than one DoD Component during any phase of asystem s life are defined as the OSD, the military departments, theChairman of the JOINT Chiefs of Staff ( JOINT Staff), the CombatantCommands,2 the Office of the Inspector General of the Department ofDefense (DoD), the Defense agencies, DoD field activities, and allother organizational entities within the DoD. The military services,1A replacement for the Interim Defense Acquisition Guidebook (IDAG) called the Defense AcquisitionGuidebook (DAG) is expected in late calendar year Command; European Command; Pacific Command; JOINT Forces Command; Southern Com-mand; Special Operations Command; Strategic Command; Northern Command; and Transportation they are part of Component military departments, are also con-sidered Components in their own most JOINT programs, a lead Component is designated to cen-trally manage the acquisition process and act as an acquisition agentfor the participating Components.

9 The participating Components those with a requirement for the PROGRAM s products both supportand participate with the lead Component in managing the acquisitionprocess. As outlined in the chapters to follow, JOINT programs are man-aged on a day-to-day basis in accordance with provisions in a memo-randum of agreement, a PROGRAM charter, JOINT operating procedures,and with the lead Component s procedures and acquisition chain-of-authority. This HANDBOOK provides guidance and suggested proce-dures that may help ensure a successful JOINT operative words in the definition and root cause of most issuesin JOINT programs are: .. formal MANAGEMENT or funding by morethan one DoD Component. While JOINT programs have issues relatedto MANAGEMENT and funding across Component boundaries, the op-portunities for interoperability among Components and significantcost savings due to scale provide significant JOINT PROGRAM Working Group FindingsIn November 2003, an OSD JPWG met at the DAU campus at FortBelvoir, Virginia.

10 That working group developed many of the con-cepts for JOINT PROGRAM MANAGEMENT covered in this HANDBOOK . Asummary of the findings of the JPWG is at Appendix for JOINT ProgramsJoint programs are established for some of the following reasons: Provide a new JOINT warfighting capability; Improve Component interoperability and reduce duplicationamong the Components; Reduce development and production costs; Meet similar multi-Service requirements; and Reduce logistics requirements through Directive , Defense Acquisition, 12 May 2003, indicatesa policy preference for JOINT development programs over Component-unique development of the JOINT Chiefs of Staff Instruction , JOINT Ca-pabilities Integration and Development System (JCIDS), 12 March2004, describes how JOINT warfighting capabilities are the staffing and review of JCIDS documents, the military de-partments, Defense agencies, and Combatant Commanders(COCOMs) have an opportunity to review the sponsor s capabilityneeds and determine if they also have a need for the proposed newsystem; if so, this may result in a JOINT acquisition PROGRAM .