ammunition, guidance, targeting, and even enablers such as intelligence and logistics. The capability to move en- compasses vehicles, of course, but also geospatial systems and logistics. Finally, the capability to communicate includes radios, computers, satellites, and networks. The effective and ef- ficient combination of all three core capabilities is required to achieve successful outcomes. The proponent for each system’s investment appeals for operational impacts, but no one has ever at- tempted to aggregate the individual impacts across all those operations. We do know how much it costs to shoot, to move, or to communicate; cost accounting can tell us that. A more detailed assessment of the value that each capability brings to the fight would need to include the performance process outputs that demonstrate accurate targeting for all warfighting ordnance and associated systems. These operations are in the hands of the military specialist, who ultimately will operate the system under various conditions in accor- dance with the concept of operations. Estimating the ROI of each core process and the contributions of its human operators and the systems they use is a significant challenge, highlighting the problem of using capability as the monetized value numerator and the process cost (for humans and systems) as the denomi- In his 1789 book, An Introduction to the Principles of Morals and Legislation , Jer- emy Bentham wrote that “nature has placed mankind under the governance of two sovereign masters, pain and pleasure.” Bentham used this idea to build a framework for what became known as “utilitarianism,” which later was expanded by John Stuart Mill, proposing that our actions are guided by a desire to maximize pleasure and minimize pain. An essential element of utilitarianism is the unification of all valued activity to a standard unit—a nator in an ROI calculation. Buy More, Save More?
U.S. Air Force Munitions Systems Airmen assigned to the 174th Attack Wing and members of the 178th Wing load an inert GBU 12 laser guided missile onto an MQ-9 Reaper at Springfield-Beckley Air National Guard Base in Springfield, Ohio, on March 18, 2025. Source: U.S. Air National Guard photo by Senior Airman Colin Simpson This image was cropped to show detail and was edited using multiple filters plus dodging and burning techniques.
Meanwhile, back at home base, it’s time to make a funding request. That request must include some jus- tification for the money, such as an operational impact—$4 million will allow us to procure 60 more devices, and those devices will be fielded to three units, giving them the capabil-
ity to defend against incoming mor- tars. Money buys capability—that is our return on investment (ROI). The Army’s core capabilities, according to doctrine, can be stated simply as “shoot, move, and communicate.” The ca- pability to shoot could encompass various systems, including weapons,
November-December 2025 | DEFENSE ACQUISITION | 13
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