Defense Acquisition magazine Sustainment Bimonthly magazine of the Defense Acquisition University for senior military personnel, civilians, defense contractors, and defense industry professionals in program management and the acquisition, technology and logistics workforce. Defense Acquisition Magazine March-April 2025 Vol LIV | No. 3 | Issue 304
DEFENSE ACQUISITION
A PUBLICATION OF DAU PRESS | dau.edu MAY–JUNE 2025
The Middle Tier Pathway Is Growing Up and Merits Broader Use
Regional Sustainment Framework Executive Director Joseph Brooks on meeting future threats
Product Support Practices for Disciplined, Faster Deliveries
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06 Interview With Joseph Brooks,
Executive Director, Regional Sustainment Framework Benjamin Tyree
Brooks discusses progress in program to relocate supplies and services closer to areas of possible conflict. 12 Product Support Speed With Discipline Shawn Harrison
By applying a disciplined approach, Pro- duct Support Managers can balance and accelerate rapid support for new capa- bilities and technologies.
18 The Middle Tier of Acquisition Is Growing Up! David Riel and Seth Shepherd
The Middle Tier pathway has generated increasingly rapid fielding and sustain- ment in support of U.S. Warfighters.
24 Unleashing U.S. Power—Building
Lethal, Accountable, and Overmatching Capabilities Dr. Sean Cassidy
Use of Organizational Ambidexterity can help adeptly balance innovation for fu- ture weapons systems while uphold- ing the prevailing superiority of exist- ing ones. 28 Artificial Intelligence and the Acquisition Strategy Brian E. Schultz Use of artificial intelligence can ease com- plex program tasks and data analysis.
32 It’s All About Incentives— Lessons for DoD
Acquisition Thomas C. Bruneau
There are ways to reduce risk aversion among acquisition workforce members.
37 Contracting Concepts— Multiple Award Contracts and Fair Opportunity Jennifer Jones
Orders under Multiple Award Contracts must comply with the “Fair Opportunity” procedures in Federal Acquisition Regu- lation subpart 16.5.
42 2025 Defense
Acquisition Workforce Writing Awards
05 Note From the Editor 17 MDAP Program
Manager Changes
DEFENSE ACQUISITION
VOL LIV
NO. 3, DAU 304
Published by DAU PRESS
Performing the Duties of Under Secretary of Defense for Acquisition and Sustainment Steven J. Morani DAU President Bilyana Anderson DAU Chief of Staff Angela Carsten Director, DAU Operations Support Group Dom Dionne Chief, DAU Visual Arts and Press Norene L. Johnson Defense Acquisition Editorial Staff
Managing Editor Benjamin Tyree Art Director, DAU Press Michael Krukowski
Editorial Assistant Susan Muth Art and Graphic Design Nicole Brate Circulation Manager Christopher McGowan Editorial Support Dr. Olena McLaughlin Michelle McDonald
Assistant Editor Collie J. Johnson Associate Editor Larrie Ferre i ro Production Manager Frances Battle Online Support Nina Austin
To contact the Editorial Staff, email defacqmag@dau.edu or call 202-579-4628. Visit our website for additional articles and resources: www.dau.edu/library/damag For information on how to submit an article, please consult our Writer’s Guidelines, which are available at the back of each issue or on our website. To subscribe to our digital publication or update your current subscription information, click on the “sub- scribe” button on our homepage or email the editors at the address above. Defense Acquisition (ISSN 2637-5052 [print] and ISSN 2637-5060 [online]), formerly Defense AT&L and earlier Program Manager, is an official publica- tion of the Department of Defense. Defense Acquisition is published bimonthly by the DAU Press and is free to all U.S. and foreign national subscribers. Periodical postage is paid at the U.S. Postal Facility, Fort Belvoir, Va., and additional U.S. postal facilities. Postmaster, send address changes to: Editor, Defense Acquisi- tion, DAU Press, 9820 Belvoir Road, Fort Belvoir, Va. 22060-5565. Disclaimer Defense Acquisition magazine promotes the free ex- change of ideas. The views expressed are those of the authors and do not reflect the official policy or position of DAU, the Department of Defense, or the United States Government. Articles are in the public domain and may be reprinted or posted on the Internet. When reprinting or posting, please credit the authors and Defense Acquisition. Photos in this publication may have been sourced from the Department of Defense website (www.defense. gov/Multimedia/Photos/). The appearance of the U.S. Department of Defense (DoD) visual information does not imply or constitute DoD endorsement. Some im- ages may be digitally enhanced.
64 Conferences and Meetings
Current conferences and meetings of interest to Defense Acquisition readers.
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70 What’s New at DAU
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COVER IMAGE: Airmen from the 123rd Maintenance Group guide a C-130J Super Hercules into the Fuel Cell Hangar at the Kentucky Air National Guard Base in Louisville, Ky., March 13, 2025. The aircraft is as- signed to the Kentucky Air Guard’s 123rd Airlift Wing. (U.S. Air National Guard photo by Dale Greer) Courtesy photo illustration. This image was cropped to show detail. This im- age was edited using multiple filters, and dodging and burning techniques.
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Note From the Editor
After nine stellar years with DAU’s Visual Arts and Press, including seven on the staff of Defense Acquisition Research Journal and more than two as managing editor of Defense Acquisition magazine, Emily Ashcom has departed to other places and pursuits. The improved and updated magazine is indebted to her energy, imagination, awesome organizational skills, editing talents, and creativity. Our staff of editors and graphic artists are resolved to conserve and expand the legacy she left us. We wish her fair winds and following seas, always, in her life’s journey Senior Editor Benjamin Tyree has resumed the managing editorship of the magazine, a position he
previously held from 2011 to 2022. Please continue reading the magazine and contributing to the great and ever-evolving discussion of ways and means to improve defense acquisition and sustainment.
It’s vitally important to our work in supporting the Warfighters. —the Defense Acquisition staff
Joseph Brooks is interviewed April 9, 2025. Source: Photo by Christopher Kaufmann, Army Multimedia and Visual Information Division
6 | DEFENSE ACQUISITION | May-June 2025
INTERVIEW WITH Joseph Brooks
EXECUTIVE DIRECTOR, REGIONAL SUSTAINMENT FRAMEWORK in the Office of the Deputy Assistant Secretary for Product Support
by BENJAMIN TYREE
J oseph Brooks was interviewed April 9, 2025, at the Pentagon by Benjamin Tyree, managing editor of Defense Acquisition magazine.
Q Mr. Brooks, the Regional Sustainment Framework (RSF) initiative was announced about 16 months ago at the December 2023 DoD Maintenance Symposium. Can we assume that like other sources, you consider that the RSF dovetails with the current administration’s priorities? A. Well, Ben, it absolutely does. RSF is directly in line with the 2025 Interim National Defense Strategy Guidance pri- orities of the administration as we are working to rebuild our military and reestablish deterrence. We’re closely collaborating everything we’re doing with the combatant commanders—working with their J4 [Joint 4 Logistics], their J5 [Joint Strategy, Plans, and Policy] to ensure that whatever co-sustainment equities we put into place match the threats that are coming. So we’re building capabilities to counter threats, but also we’re working to make sure that we put in-theater assets and capabilities and capacities for co-sustainment that allow the theater to be an economy of force in certain places, such as EUCOM [Europe] and CENTCOM [Middle East, Central and Southern Asia], but also in the case of INDOPACOM [Indo-Pacific region], to allow the combat- ant commander to have that option for sustainment closer because, in the heat of battle, you don’t necessarily want a platform to have to make the long-distance trip over the ocean to get repaired. When can I get it done here? Can I get it done closer? Can I get it back in the fight? And that’s really what regional sustainment is all about: getting that asset, that unit, that platform back in the fight, giving that combatant commander another tool to deter or to prosecute the enemy. Q What are your impressions on how implementation is going thus far? A. It’s going pretty well, actually. We’re seeing sustained movement across the board. I’ve got to tell you, for in-
stance, in the Pacific we’re seeing great developments there. We’re partnering with our Services on a growing list of pathway projects. A pathway project is something that helps us set an example. It’s something that allows us to learn and then be able to take from that and navigate. The Office of the Secretary of Defense (OSD) broadly has three job jars, right? Our first one is synchronization across the depart- ment, helping prioritize and helping advocate. So, what we’re doing at OSD’s RSF team here is synchronizing the various efforts; we’re helping prioritize. But almost more importantly, we take the lessons learned from these path- finders and go to Congress, go to higher headquarters, and try to figure out what the Warfighter requires to sustain the fight forward. What does the combatant commander need to deter? And then we’re advocating on their behalf, whether it be to deregulate, to find some regulations that maybe aren’t necessarily appropriate anymore, or find re- sources. So that’s one of our biggest roles. We’re seeing lots of good benefits right now, lots of good progress, and I’m looking forward to talking more about those. Q How are matters proceeding specifically in INDOPA- COM? I know that Defense Secretary Pete Hegseth was out there recently. Is that escalating with the partners you have in the area? A. Absolutely. I think there’s a lot of interest right now, especially with the partners with industry and the Ser- vices are executing. We see, as I said earlier, that we have pathway projects that address aircraft maintenance, we have pathway projects that address communications abili- ties, and pathway projects that have addressed watercraft for the Army in particular. And so, we’re seeing a lot of progress there. The pathway projects for aircraft main- tenance and for watercraft maintenance are underway
May-June 2025 | DEFENSE ACQUISITION | 7
and executing. In fact, recently we had a vessel repaired in South Korea, instead of having to return to the United States. That saved 9,000 miles off a journey just to get in line. It was able to get seen at roughly the same cost (in fact, I think it was the exact same cost) and get serviced but be back in the fight more than a month early. That means that vessel was able to support the combatant com- manders earlier and was, again, another tool back into the Warfighters’ hands. Q We noticed at least one Service, the Air Force, has ad- opted a broadly based approach to RSF with its Global Enterprise Network for Universal Sustainment—GENUS. What are your thoughts on GENUS, and have the other Ser- vices indicated an intent to establish a similar approach? A. GENUS is a very, very bright spot in our partnerships. We’ve been working very closely with Air Force Sustainment Center and that whole crew, Gen. Stacey Hawkins, Gen. Brian Moore, to create a partnership between that GENUS Project and RSF, because we see a lot of commonality there. And again, I think over the broad historical aspect of what we’re trying to do here. During World War II, we had to have this immense industrial might. In fact, the Arthur Herman book “Freedom’s Forge” details this. We had this intense industrial might, but we had a hard time getting it to the theater—the Battle of the Atlantic and Battle of the Pacific. Having to traverse those huge oceans to get our resources where needed for the Warfighter was difficult. And it was difficult for the Allies. We learned that lesson and applied it in the Cold War when we had lots of capabilities posi- tioned forward. But then the Berlin Wall fell and the Soviet Union dis- solved. It was no longer economical for us to have those resources forward. It made sense at the time to be more consolidated. That made perfect sense. Well, now we’re at the point where we need to go out and put more assets forward, closer to the point of need, and so GENUS is a great way that we’re doing that in partnership with the Air Force. It’s the Air Force’s initiative, and again, there is a lot of great leadership within the Air Force Sustainment Center and the GENUS program. We’re looking forward to partnering with them around the globe. Q From the numerous DoD forums that you and Deputy Assistant Secretary for Product Support Lisa Smith have addressed recently, there appears to be solid support for RSF from international allies and partners to combat- ant command to the Joint staff and the Services. What are your impressions on industry’s perspective? What are the main challenges or concerns, and how are they being addressed? A. I’m glad you brought that up. Industry is excited. This is an opportunity for them to partner with foreign firms. This is an opportunity for them to expand their global pres- ence, and with that comes new opportunities for them with those foreign nations to provide increased support.
Going back to what I talked about earlier, which was OSD’s multiple roles—synchronization, prioritization, ad- vocating—we’re working with and reaching out to the Ser- vices. We’re reaching out to our industrial partners through the associations to figure out what do they need to make RSF happen? And there could be, as you could imagine, a number of ways we can make the RSF’s chances for suc- cess higher. The first is asset visibility, knowing where we are and what we have where. The second could be resourcing. Nothing in life is free, right? So, what kind of resources do we need? And third, relief from regulation, relief from guidance and in certain places. We’ve got lots of guidance out there, and the guidance was there for the right reasons at the time it originated. But sometimes this guidance may trip up RSF. It may not necessarily help. So, we’re reaching out to the Services, industry, and our allies to ask: Which regulations, which guidance, which policy do we need to look at to advocate for its mitiga- tion or waiver or something along those lines to basically lift those barriers? Because there are barriers to doing RSF, and that could be anything from customs, it could be anything from tech transfer, it could be even as small as a business practice of a service or an agency that does foreign military sales. We’re working to identify how we need to surgically adapt guidance or that regulation or seek a waiver entirely or seek new guidance that enables us to do more. That’s what we’re up to right now; we’re collect- ing that input; we’re going back to Congress at the end of the year with a report to Section 842 out of the National Defense Authorization Act of 2024 with recommendations of how best to go forward. Q We’ve spoken of interoperability and compatibility be- tween the Services with some of our allies now shoul- dering more of their own burden for self-defense, like the Germans are finally spending more money on their own de- fense. How is that going to affect foreign military sales? Do you see any disconnect between foreign military sales and interoperability with our allies if they’re going in that more self-reliant direction with their own domestic equipment? A. We want them to buy either U.S. items or items co- produced with the United States. If they buy their own items, that is fine, but they need to be compatible and interoperable. Generally speaking, foreign military sales have only increased our operability and compatibility defined as a combined force and as a joint force, not only within the United States, but also with our partners. So, any forward progress on foreign military sales benefits the Warfighter in many ways, in my opinion. The other thing to consider is that we are pressing our allies to invest more in collective defense. That’s great. RSF gives them a venue for gainful investment, mutually gainful investment, burden sharing toward sustainment. And again, you can buy the best he- licopter or airplane or tank in the world, but if you don’t maintain it, it will be stuck in the depot. It will be stuck
8 | DEFENSE ACQUISITION | May-June 2025
at base and won’t be able to go out and protect the War- fighter and advance our cause. It won’t be there. So again, foreign military sales are terrific, and we’re working with the Defense Security Cooperation Agency (DSCA) to ensure that sustainment is considered more so than ever before in the creation process. Well, you know, a lot of our listeners probably have read Clausewitz, who wrote a lot about logistics. Now, the terminology may be slightly different just because of time and different languages. But it’s important to realize that Clausewitz took a lot of his inspiration in writing on war from his experience during the Napoleonic Wars. And Napoleon left for Moscow without enough wagons. He did not have the ability to sustain forward and, again, we are learning this lesson. The peace dividend, the idea that we consolidated our sustainment apparatus after the Cold War, was the right decision for that time that made sense. Now what makes sense is sustainment forward. We have an era where we have allies who can invest. We also have potential adversaries that could contest our logistics, could test our ability to get what we need forward to sup- port the Warfighters. That’s why we need RSF. We need that ability to sustain forward. Q RSF has a whole-of-government aspect. What other departments or agencies are critical to implementing RSF objectives, and how are things going with that? A. Absolutely. Often they’ll teach in war college, for in- stance, diplomatic, information or intelligence, military and
economic—DIME—and RSF pretty much uses every aspect of the DIME. So we have to partner with our interagency partners, like the Department of State, Department of Commerce, even the Intelligence Community. We’re part- nering with all of them to make sure that whatever we put in place is coordinated and for the maximum benefit in terms of efficiency, but again, readiness and lethality for- ward for the Warfighter. We want to be able to regenerate it, especially in a time of conflict. Q In addition to the recently published Maintenance, Repair and Overhaul [ MRO ] Playbook , what tools is your office working on to assist with the implementation? We understand that these might include memorandum of understanding templates or process map and other guid- ance. Is RSF being worked into DoD Instruction 5000.91 explicitly? A. Absolutely. And you know, we’re so lucky to be part of such a great office and Product Support under Deputy Assistant Secretary Smith’s leadership. And that office really gave us a running start with the MRO Playbook that can be found on the DAU website. And that is a great asset for international partners, industrial partners, to try to see how we do this. What is a good way to go for it? We’re working together to come up with a sequel to that, an RSF guidebook. And a guidebook is a more formal issuance through Washington Headquarters Services, and it will be more robust. We’re also working with the data folks in the depart- ment to try to figure out ways to synthesize the data from
Joseph Brooks (left) explains current RSF developments to Defense Acquisition magazine’s managing editor Benjamin Tyree. Source: Photo by Christopher Kaufmann, Army Multimedia and Visual Information Division
May-June 2025 | DEFENSE ACQUISITION | 9
RSF. What are the gains? Where are we? What range of gains are we achieving? What cost
understand that, OK, there’s a main- tenance plan, there’s a warranty, there are all these other aspects. Now, we’re not necessarily talk- ing about warranty here, but we are talking about maintenance. And understanding what kind of maintenance is involved from the start is essential. We’re partnering with DSCA, to work with them to update their procedures for case cre- ation, so that when a foreign military sales case is initiated, the partner gets more of a focus to consider sustainment going forward. It’s great to have these helicopters, aircraft,
efficiencies are we achiev- ing? But also, where are these assets? Because we need to have our command- ers informed about where we have these RSF capa- bilities developed under the strategy of RSF. And so, we’re working on data tools such as Advana and taking a holistic ap- proach to the RSF guidebook. Additionally, we’re partnering with DAU on coming up with a creden- tial attached to Life Cycle Logistics, and there’s
ships, tanks, etc., wheeled vehicles, tracked vehicles. U.S.- made equipment is tremendous. But you have to maintain it, and that is a cost that you have to consider from the start. So, for those new systems that you brought up, I think getting sustainment in the wedge ahead of time is possible, and we’ve seen this a little bit with the joint strike fight, because that’s a program where sustainment was more of an upfront consideration, especially with allies and partners. I think going forward we also have to consider our leg- acy items because we’ve got to be prepared tonight . We’ve got to be prepared as soon as possible, and that means going to war with what you have and sustaining what you have in this case. More importantly for our communities, we have to be able to sustain it. And so, considering RSF co-sustainment, the idea that we can burden share the investment necessary for long-term sustainment of assets in theater, I think that’s essential and it’s almost platform agnostic. You need to be able to sustain whatever you have forward in a time of crisis. Q Do you have any other thoughts you would like to share with our audience about how you see the future un- folding here? A. I’m just excited. We are in a time when there are many changes, and with many more coming there is an oppor- tunity to improve. And I think regional sustainment is an opportunity to improve. It’s an opportunity for us to im- prove DoD. It’s an opportunity for allies to improve. It’s an opportunity for industry to improve. The partnerships that they could gain internationally, our industry partners, are huge, you know? And then as a Defense Department employee, the first thing on my mind is making sure that the Warfighters have what they need to succeed. Editor’s note of appreciation: Shawn Harrison, the DAU learning director for Product Support Integration and a pro- fessor of Life Cycle Logistics, helped shape this interview.
been a lot of great work toward life cycle logistics. I think, thanks to DAU and organizations like the Defense Logistics Agency, OSD, etc., we’ve got a great curriculum there. And so, we’re looking to attach a credential for RSF on top of life cycle logistics. We’re planning on having that out at the end of this year, in December 2025. But again, lots of resources are coming, and we’re all ears. One of the things we want to do is make sure that these capabilities we develop have instant transmission, instant benefit to the combatant commanders, the Warfighters. Q How do you think RSF will be reflected in the work done by government and contractor DoD sustainment professionals? Will there be a significantly increased DoD civilian presence abroad to manage the program? A. I don’t want to get too far ahead of the Services here. The Services really are in charge of resources and trying to figure out how we specifically execute. I could certainly see a bit more of an international presence, especially in terms of artisans going forward. We have tremendous skills in our organic industrial base. For instance, GENUS is one of these programs that use the artisan. The Air Force Sustain- ment Center sends the artisan forward, and they basically use a little bit of the trainer approach. They send that per- son out there, and they help get that location up to speed. I could see some roles like that. I could certainly see other roles. But by and large, we’re looking to increase capacity abroad, and that could engender some more movement of folks abroad. But again, it’s up to the Services exactly how they want to execute. Q What advice would you have for our readers as they contemplate establishing RSF capabilities for their weapon systems, both new and legacy? A. Life cycle logistics—the whole idea of when I buy some- thing, I have to figure out how I’m going to maintain it. A lot of times when we go buy a car, we go in that back room, and sometimes that’s not a pleasant experience, but it is a good experience in the sense that it helps us
Reproduction or reposting of articles from Defense Acquisition magazine should credit the authors and the magazine.
10 | DEFENSE ACQUISITION | May-June 2025
Tailor Your Acquisition Strategy with the AAF
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Based on six acquisition pathways, it equips DoD professionals with customized processes that can help deliver better solutions faster. DAU is here to help you master the AAF so you can accomplish the mission at speed and scale.
Resources and Tools: ▪ Guided Learning ▪ Quick Reference Card ▪ Document Identification Tool ▪ AAF Pathway Selection Workshop
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Product Support SPEED WITH DISCIPLINE by SHAWN HARRISON
U.S. Marines prepare Amphibious Combat Vehicles (ACV) for a low tide crossing on Camp Schwab, Okinawa, Japan, Nov. 26, 2024. While deployed, the ACV is certified to conduct a wide range of mission sets, including open water, protected water, and land-based operations. Amphibious operations, including the use of ship-to-shore connectors, is a foundational aspect of Marine Corps operations and is critical to remaining the nation’s premier expeditionary force in readiness. The Marines shown are with the 4th Marine Regiment, 3d Marine Division. Source: U.S. Marine Corps photo by Lance Cpl. Kendrick Jackson This photo was cropped to show detail. This image was edited using multiple filters and dodging and burning techniques .
12 | DEFENSE ACQUISITION | May-June 2025
T he 2022 National Defense Strategy directs the DoD to “act with urgency to build enduring advantages for the future Joint Force … accelerate force de- velopment, [and procure] the technology we need more quickly.” The words urgency , accelerate , and quickly explicitly point to “the need for speed” in acquisition. In his Jan. 25, 2025, “Message to
UCA and MTA pathways, the empha- sis on quickly fielding operationally relevant capability presents signifi- cant challenges for the PSM. Despite the challenges and regardless of path- way, PSMs are responsible to the pro- gram manager (PM) for their role in life cycle management, from system inception to disposal. Accordingly, this article provides potential strat- egies for PSMs, in concert with the product support policy for these path- ways provided in DoD Instruction (DoDI) 5000.91 , to achieve speed with discipline . Background Before we dive in, let’s do a quick refresher on the characteristics of the UCA and MTA pathways (including the MTA’s two “subpathways” of rapid prototyping and rapid fielding). UCA programs deliver capability within two years. They focus on use of proven available technologies and do not require substantial develop- ment. A PSM is recommended for UCA programs. DoDI 5000.81 calls for the PM to provide training, spares, technical data, software, facilities and infrastructure, support equipment, maintenance, and other logistics sup- port such as Field Service Representa- tives (FSRs). UCA programs require a “supportability strategy” (e.g., Prod- uct Support Strategy, or PSS) and a “sustainment plan” approved by the Milestone Decision Authority at the production milestone. MTA Rapid Prototyping (MTA-RP) programs deliver capability within five years. To rapidly develop fieldable prototypes, they use innovative tech- nologies that are demonstrated in an operational environment and provide a residual operational capability. A PSM is required for RP programs. DoDI 5000.80 calls for the PSM to implement sustainment programs addressing ap- plicable Integrated Product Support
the Force,” Defense Secretary Pete Hegseth cited three ways to achieve DoD’s mission of peace through strength—including rebuilding our military, which requires “rapidly field- ing emerging technologies.” Two of the Defense Acquisi- tion System’s Adaptive Acquisition Framework (AAF) pathways are spe- cifically designed to quickly deliver capability to the Warfighter. These are the Urgent Capability Acquisition (UCA) and Middle Tier of Acquisi- tion (MTA) pathways. (Note: The Software Acquisition Pathway also emphasizes speed, but this article focuses on hardware-centric weapon systems.) In concert with these path- ways (and all pathways), DoD Directive 5000.01 emphasizes the need to take the following actions: • Employ a disciplined approach— including use of baselines, control objectives, and an appropriate level of reporting. • Plan for product support— includ- ing a business case analysis, sup- port metrics, and best use of public (government) and private sector (contractor) support. Planning for product support is, not surprisingly, the responsibility of the product support manager (PSM). PSMs are the senior Life Cycle Logis- tics (LCL) functional leaders within programs and are responsible by stat- ute (10 U.S.C. § 4324) for managing the package of support functions required to field and maintain the readiness and operational capability of weapon systems. The DoD Product Support Manager (PSM) Guidebook calls for “a disciplined design for support approach.” This emphasizes the need to design sys- tems that are reliable, maintainable, and can be effectively and afford- ably sustained. However, for the
Despite the challenges and regardless of pathway, PSMs are responsible to the program manager (PM) for their role in life cycle management,
from system inception to disposal.
(IPS) elements. RP programs require a Life Cycle Sustainment Plan (LCSP) but not as an entrance criterion. MTA Rapid Fielding (MTA-RF) programs begin production within six months and complete within five years. They use proven technologies to field production quantities of new or upgraded systems with minimal development. A PSM is required for RF programs. DoDI 5000.80 calls for the PSM to implement sustainment programs addressing applicable IPS elements. RP programs do require an LCSP as an entrance criterion. Speed With Discipline “Speed With Discipline” is a princi- ple adopted by several DoD acquisition
May-June 2025 | DEFENSE ACQUISITION | 13
organizations. It encourages PMs to challenge the status quo, tailor-in re- quirements and documentation, and streamline reviews and decision-mak- ing. It applies not only to PMs, but the entire program office team, including the PSM. For example, the Depart- ment of the Air Force policy for MTA programs states, “ Disciplined product support planning [emphasis added] is a critical enabler to rapidly field and sustain capability.” But “how” does a PSM employ a disciplined approach while moving fast? The next section reviews a few recommendations centered around two principal PSM activities—Prod- uct Support Strategy development and Product Support Package devel- opment and fielding. The PSS is a program’s overarch- ing approach to meet sustainment requirements and identifies major elements of the product support package. The PSS first appears in the
Acquisition Strategy. As the program progresses, the PSS is incorporated and expanded into a program’s LCSP based on analysis and increasing level of detail. The DoD PSM Guidebook in- cludes a 12-step continuing, iterative process (Figure 1) for developing a PSS. UCA or MTA program time con- straints will likely require compres- sion, combination, or tailoring-out of certain steps. For example, Steps 3 and 4, Baseline the System and Identify/ Refine Performance Outcomes , could be combined into a single step of identi- fying key metrics, such as availability, reliability, and maintainability. De- tailed analyses and refinement may need to be deferred until operational data are available. Similarly, Steps 5 and 6, conducting a Product Support Business Case Analysis and Product Support Value Analysis , may be simpli- fied or deferred for a UCA program
and significantly streamlined for an MTA program. Finally, Steps 8 and 9, selection of Product Support Integrators and Pro- viders , may be combined into a single Product Support Arrangement with a contractor, often the original equip- ment manufacturer (OEM), provid- ing substantial Interim Contractor Support (ICS) or Contractor Logistics Support (CLS). This would likely be the case for new systems or complex modifications. The PSM team must also be inti- mately involved in transition planning and take “the long view,” particularly for capabilities that indicate long- term operational utility. At the same time, the PSM team must be respon- sive to product support requirement changes driven by the operational en- vironment. This pace may be hectic during initial fielding as blind spots are exposed and solutions are developed to fill gaps. It can be incredibly diffi- cult to balance long-term discipline and forethought with responsiveness. The use of product support model- ing and simulation tools, such as the Future Long-Range Assault Aircraft’s discrete event simulation during its MTA program, can be an incredibly valuable analytical capability for the PSM in conducting “what if” drills and “dialing in” the optimal PSS. Whether utilizing a supportabil- ity strategy, sustainment plan, or comprehensive LCSP, the PSM or LCL should address all 12 IPS ele- ments in developing the product support package consisting of all of the products and services needed to field and maintain system readiness. Organized by the three groups of IPS elements in Figure 2, below is a list of anticipated speed-imposed limita- tions and potential mitigations. (Note: Time pressures for UCA programs are often significantly more intense than MTA programs, and many of the pro- posed mitigations may not be pos- sible when using Undefinitized Con- tract Actions and letter contracts.)
Figure 1. 12-Step Process for Developing a Product Support Strategy
Source: Author.
14 | DEFENSE ACQUISITION | May-June 2025
tion is a Bill of Materials and spare parts list made unstable by the rapidly evolving product baseline. The second limitation is reduced supply chain visi- bility, especially below the second tier (subsystem level). There also is likely insufficient time for provisioning and cataloging or to generate the data to support it. Then there is substantial use of expedient packaging and mate- rial handling methods. Potential mitigations for these im- pacts begin with focusing on critical spares, particularly peculiar (non- stocklisted) items and preparing for greater use of Interim Supply Support for peculiar items. Next, triage supply chain visibility to only critical items (e.g., safety- critical) and defer the rest until post- fielding. This increases risk, so a can- did discussion with the PM is a must. Then secure contractual supplier data options, escrow, etc., for future provisioning and cataloging, which can support logistics reassignment of peculiar items. This will preserve opportunities for cost-effective or- ganic or competitively contracted supply support. Finally, defer plans to develop specialized containers and material handling equipment and work with Service Packaging, Handling, Storage, and Transportation subject matter ex- perts (SMEs) to verify the safety and security of expedient methods. In maintenance planning and management, speed-imposed limita- tions begin with a lack of robust sup- portability analyses (level of repair analysis, etc.) to inform maintenance planning. The second limitation is deferring development of any new additional Condition-Based Main- tenance Plus (CBM+) capabilities. Also, be prepared for greater reli- ance on ICS and transactional CLS. This is particularly relevant for new systems, new procedures, and highly technical tasks. Potential mitigations for these begin with establishing contract options or deferred ordering of data needed for supportability analysis and CBM+.
Figure 2. Integrated Product Support Elements
Source: Author.
Life Cycle Sustainment Management In Product Support Management, the first speed-imposed limitation is a highly tailored Warfighter require- ments document, which may include little to no sustainment content or metrics. This is particularly likely for UCA and MTA-RP programs, whereas the recent update to DoDI 5000.80 now specifically requires sustainment metrics for MTA-RF programs. The second limitation is difficulty secur- ing funds and PM support to put all of the product support data require- ments needed into contracts or other transaction agreements. While this is a common problem for all acquisi- tion programs, it is often more likely for rapid ones. The third limitation is streamlined (or nonexistent) logistics test and evaluation (T&E). To mitigate these impacts, the PSM should work closely with the
Warfighter to establish or derive re- quirements for sustainment metrics and, when available, use field opera- tional data to inform updates. The PSM should leverage the concept of operations, use cases, and scenarios to understand product use in its op- erational environment and ensure that maintainability and usability are mea- sured and improved. The PSM should advocate for priced options, deferred ordering, or other means to secure necessary data for later analysis, including support- ability analysis. If it can’t be delivered in a timely manner, at least establish an option for the contractor to deliver it later. Next, prioritize and advocate for risk-based logistics T&E, including greater reliance on nontest forms of evaluation such as inspection, analy- sis, and model-based testing. For supply support and packaging, etc., the first speed-imposed limita-
May-June 2025 | DEFENSE ACQUISITION | 15
For those following along carefully, this is absolutely a repeat mitiga- tion—preserving options to complete important work later. For CBM+, it enables future establishment of the capability to perform maintenance— not after parts break but when there is evidence of need, thereby improv- ing predictability and system avail- ability. Next, if warranted and using available data, work with Service modeling experts to build a discrete event simulation that analyzes main- tenance concepts and strategies (see example at: https://media.dau.edu/media/1_ xfaum0xe ). While time-consuming and resource-intensive, this can be a game-changer for high-dollar, high-interest programs. Finally, defer plans to establish Performance Based Logistics (PBL) solutions until the system and logis- tics demand are more mature and predictable. PBLs can reduce cost and improve readiness, but rapid pro- grams may not be the best candidates early on. Technical Management In design interface and sustaining engineering, speed-imposed limita- tions begin with few (or no) physical prototypes or test articles to examine for maintainability. Prepare for com- bined or streamlined Systems Engi- neering Technical Reviews (SETRs), such as design reviews, which limit opportunities to review technical as- pects of the design. Then, anticipate that program needs may demand greater reliance on new technologies, especially MTA-RP. Finally, expect an initial fielding priority focus on engi- neering assistance to field units ver- sus long-term fleet health. Potential mitigations include re- quiring a model-based Human Engi- neering Design Approach Document- Maintainer contract deliverable to provide for robust review of system and support package design. Work with the lead command and (where applicable) organic depot to maxi- mize maintenance SME support for limited SETR opportunities to assess
U.S. Air Force Senior Airman Caleb Townsel, 436th Maintenance Squadron aircraft hydraulic systems journey- man, reviews technical order instructions for the removal of the nose landing gear strut on a C-5M Super Galaxy at Dover Air Force Base, Del., Feb. 7, 2025. The Hydraulics Section is one of five flights within the 436th MXS that inspects, maintains, services, and repairs C-5M and C-17 Globemaster III hydraulic systems and associated components. Source: U.S. Air Force photo by Roland Balik
maintainability, access, and inter- faces. Seek additional SMEs, including from Service laboratories, to assess innovative technologies for product support impacts. Then, advocate for FSRs to provide robust in-theater re- pairs and maintainer training. Finally, collaborate with the sustaining engi- neering team and PM to maximize use of modular open system approaches and prioritize, collect data about, and advocate for funding of fleet health activities such as materiel improve- ment, obsolescence mitigation, and technical manual updates. In technical data and IT systems continuous support, speed-imposed limitations include product baseline instability that delays or defers the physical configuration audit. The PSM may not have enough time to produce military-format maintenance and op- erator manuals or to verify nonroutine tasks. The PSM may lack the time to establish an organic software support activity (SSA), and this could result in greater reliance on contractor soft- ware support. Potential mitigations include (you guessed it!) establishing contract op- tions or deferred ordering for Tech- nical Data Package delivery (e.g.,
models) needed to support the long- term PSS, including organic or com- petitively contracted repair as well as additive manufacturing. Next, the PSM and PM may need to negotiate with Warfighters for use of commer- cial manuals, if applicable (at least initially). In addition, the PSM may need to leverage simulations and/or defer physical verification of low-risk and nonroutine tasks. Finally, a recent best practice includes development contract provisions for embedded or- ganic SSA engineers to gain insights and experience with the OEM that can support transition to long-term organic SSA. Infrastructure Management Facilities, infrastructure, and sup- port equipment are where speed- imposed limitations almost certainly will leave insufficient time to com- plete military construction projects for operations and support facilities and infrastructure. Speed may require increased use of expedient and pecu- liar support equipment or adapters. Potential mitigations include em- ploying Warfighter SMEs during sys- tem design to collaborate early on
16 | DEFENSE ACQUISITION | May-June 2025
workarounds and explore alternatives that reduce the need for new and modified facilities. While these also apply to nonrapid programs, greater innovation may be needed. And, to state the obvious, the PSM should prepare for greater or longer term use of ICS and/or CLS for peculiar support equipment repairs and parts support. For manpower and personnel as well as training, speed-imposed limit- ations may include using maintenance specialties in nontraditional roles and insufficient time to establish in-house training or procure training devices (e.g., simulators). Potential mitigations include help- ing the Warfighter prepare for a short- term greater level of cross-training or expansion of specialty code, op- erational specialty, or enlisted code duties. FSRs can effectively mitigate enlisted maintainer skill shortfalls through point-of-need training. Fi- nally, the PSM should prepare for greater and prolonged reliance on Type 1 “factory training” and use of expedient devices and digital system models for training. Parting Thoughts for PSMs Going fast doesn’t mean aban- doning tried and true practices. It
may mean deferring them to the next phase or pathway or taking a stream- lined approach to field capability with “minimum viable sustainment”—par- ticularly for UCA programs. Going fast will require triaging what is most critical for product support and for determining, with the PM, where the program can take risk. Finally, consider the following practices: • Partner with the PM, chief engi- neer, and other senior functionals as a trusted and value-added col- league—developing solutions with a “yes, if” mindset. • Stay closely connected to the War- fighter, particularly field mainte- nance SMEs, during design (e.g., reliability and maintainability work- ing groups), testing, and fielding. They are the ultimate customer of the product support package and can provide invaluable feedback on potential gaps and needed im- provements. Consider making site visits where possible. • In executing job number one— rapid fielding of the product sup- port package—carve out time for critical thinking about options, on/ off-ramps, and alternatives to en- able timely changes if needed.
HARRISON is the DAU learning director for Product Support Integration and a professor of Life Cycle Logistics. He previously was the T-7A jet trainer’s product support manager. His other program office experience includes working with jet fighters, helicopters, aerial refueling, and special mission aircraft. Har- rison holds a B.S.E.E. degree from Worcester Polytechnic Institute and an M.S. in Man- agement from Troy University. He is a former RAND Air Force Fellow and is certified in Life
Cycle Logistics and Engineering. The author can be contacted at shawn.harrison@dau.edu .
The views expressed in this article are those of the author alone and not the Department of Defense. Reproduction or reposting of articles from Defense Acquisition magazine should credit the authors and the magazine.
DAU Resources • Adaptive Acquisition Framework • LOG 3530, UCA and Logistics online course • LOG 3540, MTA and Logistics online course • Hidden Value: The Under- appreciated Role of Product Support in Rapid Acquisition
MDAP PROGRAM MANAGER CHANGES With the assistance of the Office of the Secretary of Defense, Defense Acquisition magazine publishes the names of incoming and outgoing program managers for major defense acquisition programs (MDAPs). This announcement lists such changes of leadership for both civilian and military program managers for the months of February through March 2025. ARMY
NAVY/MARINE CORPS Capt. Sarah E. Abbott relieved Capt. Richard M. Gensley as Program Manager for the Precision Strike Weapons Program (PMA 201) on February 27, 2025. Capt. Roger A. Davis relieved Capt. Adam T. Scott as Program Manager for the E-6 Airborne Strategic Command, Control and Communications Program (PMA 271) on March 21, 2025. Col. Jason T. Duke relieved Col. Vasilios E. Pappas as Program Manager for the H-1 Program (PMA 276) on March 20, 2025.
Lt. David Daniels relieved Lt. Nicholas Yerby as Product Man- ager for Apache Development and Modernization effective February 2025. AIR FORCE None FOURTH ESTATE SES Ms. Virginia W. Perkins replaced Acting Chief Engineer Mr. David O’Neil , to become the Chief Engineer of the Missile Defense Agency (MDA) on January 31, 2025
May-June 2025 | DEFENSE ACQUISITION | 17
T he Middle Tier of Acquisition (MTA) is coming into its own for broader use with the evolution and development of its governing policies, including several clarifications issued late last year. This option deserves greater understanding and broader use.
On Nov. 23, 2015, the MTA was born with the signing of the Fiscal Year (FY) 2016 National Defense Authorization Act (NDAA). For over two years, it remained dormant as the focus on the Global War on Terror- ism continued and our presidential administration changed. During that time, Congress made some subtle changes in the FY 2017 and FY 2018 NDAAs, but implementation and even awareness among the Defense Acqui- sition Workforce remained minimal.
This culminated in a Congressional Joint Explanatory Statement noting that the DoD had not acted on its new authority. These congressional promptings led to MTA’s arrival on the DoD scene in April 2018 when Under Secretary of Defense for Acquisition and Sus- tainment (USD[A&S]) Ellen Lord published her memorandum, “Middle Tier of Acquisition (Rapid Prototyping/Rapid Fielding) Interim Authority and Guidance.” This not only authorized but encouraged
the DoD Components to “immedi- ately further implement the Section 804 authority by developing rapid prototyping and fielding processes and procedures.” Some Service Acquisition Execu- tives, like Dr. Will Roper at the U.S. Air Force (USAF), embraced the new authority in his April 10, 2018, memo, “Seven Steps for Incorporating Rapid Prototyp- ing into Acquisition,” writing that “our new authorities provide so many tools to be creative; using them should rou-
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