As I have written elsewhere, the Army's leadership has taken a number of bold steps to reform its sclerotic acquisition system. Army Secretary Mark Esper and Chief of Staff General Mark Milley have set ambitious goals for a revamped acquisition system. Secretary Esper has spoken of reducing the time it takes to formulate requirements from an average of five years to just one. General Milley wants new capabilities ten times more lethal than those they replace. Getting there, he suggested in a recent speech, is as much a matter of attitude and culture as it is about technology:
I'm not interested in a linear progression into the future. That will end up in defeat on a future battlefield. If we think that if we just draw a straight line into the future and simply make incremental improvements to current systems, then we're blowing smoke up our collective fourth point of contact…
There is no question that the Army's leadership is all-in on acquisition reform. This does not mean that success is assured. It is natural for the current system to resist change, marshaling all the weapons of law, regulation, custom, and habit to retard or even negate progress towards the goals of a faster and more effective way of designing and procuring new capabilities. In a recent RollCall article, Under Secretary of the Army Ryan McCarthy recommends that elements within the current acquisition system will present the hardest challenge as they attempt to preserve their "bureaucratic rice bowls."
As aggressive as the Army acquisition reform program has been, they could be bolder still. Here are three additional initiatives that should be pursued.
(Photo by Amanda Kim Stairrett, 1st Infantry Division Public Affairs)
3. Restructure the Office of the Assistant Secretary of the Army for acquisition technology and logistics (ASA/ALT)
One of the major problems the current reforms is intended to address is the stovepipes that exist between requirements formulation and capabilities development and procurement. The proposed solutions, including the creation of Futures Command, do not go far enough. Currently, Army Material Command (AMC), the organization that oversees the actual development and production of new capabilities, reports to the Chief of Staff. However, by law, AMC's Program Executive Offices (PEOs), which manage specific programs also report to the Secretary of the Army through the ASA/ALT.
This creates an inherent conflict of interest for the PEOs who are responsible both for program execution and oversight. There will be a natural tendency for PEOs to exploit this organizational contradiction to pursue their own interests and maximize their freedom of action. But this is more than just a bureaucratic problem. There are reports that some PEOs have been told by Army lawyers that they cannot participate in the work of the newly-created Cross Functional Teams. The current system also runs counter to Congress' efforts to allow the Service Chiefs greater authority over the acquisition process.
Army leadership needs to change this system. The logic of the current reform campaign dictates that the entire acquisition process be placed under the Army Chief of Staff. The role of the Assistant Secretary of the Army should be limited to oversight, assessment, and review of the work done by AMC and the PEOs. Clearly, this will require action on the part of Congress to rewrite the current law. But the Army needs to make a case for restructuring ASA/ALT.
2. Seek Relief from the onerous requirements of the Congressional appropriations process
The current defense budget appropriations process requires the Services to produce detailed descriptions, called exhibits, of the programs they are pursuing, including the specific quantities and types of equipment to be procured as well as the funds required. A lack of specificity in these documents often results in the appropriations committees refusing to fund a request.
The problem is that the Services' budgets must go through an elaborate review and vetting process at multiple levels before a defense budget is actually submitted to Congress. Consequently, they may be up to two years out of date. But if changes are required, a reprogramming request must be submitted, which is a laborious process in itself.
This has been a particular problem of late in the procurement of munitions since the Services, particularly the Air Force and Army, did not anticipate two years ago how many weapons would be expended in the fight against ISIS. It is already a serious problem in areas such as cyber and communications systems where the technology cycle time is measured in months, not years. But if the Army can accelerate the acquisition system, it will become a problem in multiple areas.
The Army, really all the Services, need to work with the appropriations committees to revamp the budget document process. There needs to be a way of promoting flexibility for the PEOs while allowing for Congressional oversight. This could involve building off-ramps or alternative pathways into the reports that can be executed without triggering the need for a reprogramming request.
1. Make aggressive use of available rapid acquisition authorities
In the 2016 National Defense Authorization Act, Congress gave the Department of Defense the authority to waive virtually all procurement regulations in order to rapidly acquire critically needed capabilities. Congress also expanded the power of the Services to employ other transactional authorities to speed up the acquisition process. The current Undersecretary of Defense for Acquisition, Technology and Logistics, Ellen Lord, has proposed using these new authorities to reduce contracting times by fifty percent.
The Under Secretary of Defense for Acquisition, Technology, and Logistics, Ellen M. Lord, speaks at the 2017 The Department of the Navy Acquisition Excellence Awards on Oct 12. (U.S. Navy photo by Mass Communication Specialist First Class Jonathan L. Correa)
To date, the Army has not taken advantage of these new authorities. The Army needs to walk through the open door provided by Congress and senior leaders of the Department of Defense. The Secretary and Chief of Staff need to identify a set of candidate capabilities that could be acquired using the new authorities. This has both a practical and symbolic value. There are a number of capability gaps that would benefit from the introduction of an interim solution.
More importantly, the use of rapid acquisition authorities is a demonstration of how serious Army leaders are about changing the risk-averse, "all the time in the world" acquisition culture. The Army has shown it can terminate programs that are failing or no longer meet warfighters' needs. It must show that it is just as capable of making rapid decisions when it comes to procuring new capabilities.
Implementing organizational change is hard; altering an institution's culture is even more difficult. The key to success is to go big and fast. The Army needs an even bolder program for reforming its acquisition system.