Public Policy and Private Enterprise in National Security

FEDERAL ACQUISITION: CONCEPTS AND MANAGEMENT

PUAF 689A William Lucyshyn Fall 2012 2211B Van Munching Hall Wednesday 4:15 - 6:45 PM Office Hours: Wed 2:30-4 PM Room: TBD 301.405.4794 (By Appt.) Van Munching Hall [email protected]

Course Description

This course provides an overview of acquisition as one of the basic functions of government. Specific focus will be on the scope of acquisition, including organizational structures, regulations, strategies and issues of acquisition processes and management, from the development of an initial capability or need, through design, development, production, fielding, sustainment, and disposal. Introduces the principles and concepts that underlie successful acquisition management – from major systems development and production, through buying services and common commodities; and a special consideration of state and local levels

Course Requirements

You should prepare for class each week by reading the assigned material and cases. For the cases, be prepared to lead/participate in the class discussion, on: 1) the issues raised, 2) the relevant theory and practice (from readings, experience, etc.), and 3) your recommended actions and rationale. (You are encouraged to discuss these items with one or more of your classmates prior to the class discussion of the case.)

The three short (four pages max.) “issue papers” will be based on a topical acquisition issue (e.g. competition; firm-fixed price contracting; use of Lowest Price Technically Acceptable source selection criteria; conflicts of interest; etc.) to be announced at least 2 weeks in advance. They should be clearly written, well thought out and with appropriate facts to support your argument. They should be well researched (use endnotes), double spaced and printed out. Writing a good short paper is often harder to do than a long paper, and much more likely to be read by senior policy makers. If the paper is late, there will be a reduction in the grade.

For the second and third issue papers, you will be given a topic of current interest and one relevant to the course content. For the first paper, the topic will be selected by the students. You should develop your issue paper by first clearly stating “the issue,” then describing the background of the issue or subject upon which you intend to focus. Subsequently, you should develop a recommended course of action and defend it. (There is a reading on ELMS Blackboard that may be helpful with regard to writing an issue paper.)

During class #15 each student will be required to give a brief oral presentation of their first paper (less than 5 minutes each). This should focus on the issue addressed and the recommended approach.

Students are encouraged to discuss any issues or questions related to this course with me. My office hours are Wednesday, 2:30 - 4:00 p.m., please make an appt. by phone or by e-mail.

Course Grading

There will be a final examination; very strong emphasis on class participation (reflecting mastery of the readings, analytical thinking, and grasp of the subject matter) and the three papers. The grade for the course will be calculated as follows:

Final Exam 30 Issue Papers 45 Class Participation 25 (including oral presentation)

Readings You should purchase the two books (see below). The case studies can be purchased at the Copy Center located in 1406 Van Munching Hall. Finally, the additional readings will be available on line at ELMS Blackboard.

Engelbeck, Marshall R., Acquisition Management, Management Concepts, 2002

Cohen, Steven, and William Eimicke, The Responsible Contract Manager, Georgetown University Press, 2008

2 Weekly Class Assignments

Class Topic Reading #1 Introduction a. Engelbeck pp 1-37 b. Cohen and Eimicke pp. 3-22 Assignment of 1st Issue c. Gansler, A vision of the Government as a World Class Buyer. IBM Center for Paper the Business of Government. Jan 2002, pp. 6-12 http://www.businessofgovernment.org/sites/default/files/A%20Vision.pdf d. OFPP Policy Letter Work Reserved for Government Employees Draft http://www.gpo.gov/fdsys/pkg/FR-2011-09-12/pdf/2011-23165.pdf e. FAR Part 1 https://www.acquisition.gov/far/current/html/Subpart %201_1.html#wp1130776 #2 “What we buy” – Initiating a. Terry Bahill, Bo Bentz, and Frank Dean, Discovering System Requirements, Acquisition Process SAND96-1620, Sandia Report, Sandia National Laboratories, USA, 1999 Requirements http://prod.sandia.gov/techlib/access-control.cgi/1996/961620.pdf b. Army Strong: Equipped Trained and Ready, January 2011 pp. 31-38 Paper Topic Due http://usarmy.vo.llnwd.net/e2/c/downloads/213465.pdf c. Beno, Mikael S. Does Anybody Out There Understand the Requirements Process? http://www.dau.mil/pubscats/Lists/ATL %20Database/Attachments/722/Beno_jul-aug10.pdf d. GAO, Better Matching of Needs and Resources Will Lead to Better Weapon System Outcomes, GAO-01-288. http://www.gao.gov/new.items/d01288.pdf e. Hodgson, Quentin E. Deciding to Buy: Civil-Military Relations and Major Weapons Programs. U.S. Army War College. Nov 10, 2010. http://www.strategicstudiesinstitute.army.mil/pubs/display.cfm?PubID=1030 , pp. 61-82 #3 Federal Acquisition Process a. DoD Directive 5000.1 http://www.dtic.mil/whs/directives/corres/pdf/500001p.pdf b. Dillard, John, Toward Centralized Control of Defense Acquisition Programs, Defense Acquisition Review Journal, Aug 2005 https://acc.dau.mil/adl/en- US/434065/file/56386/DARJ%20Aug.%2005%20-%20Nov. %2005%20%237%20Toward%20Centralized%20Control.pdf c. Defense Acquisition Performance Assessment Summary. http://www.defense.gov/pubs/pdfs/DAPA%2012-22%20WEB%20Exec %20Summary.pdf Jan 2006 d. Mine Resistant Ambush Protected (MRAP) Vehicle. Darden Business Publishing UV 1090, Jan 21, 2009 #4 Ethics and Acquisition a. C&E pp. 23-39 b. White House Jan 21, 2009 Executive Order http://www.whitehouse.gov/the- First Issue Paper Due press-office/ethics-commitments-executive-branch-personnel c. Title 48, Vol. 1, Chapter 1, Part 3 http://ecfr.gpoaccess.gov/cgi/t/text/text-idx? c=ecfr&sid=5abf95ef2bacfdf75a55a7a280cac033&rgn=div5&view=text&node Topic for 2nd Issue =48:1.0.1.1.3&idno=48 Assigned d. Branstetter, Jeffrey. Darleen Druyun: An evolving Case Study in Corruption, Power and Procurement. Public Contract Law Journal. Vol. 34, No.3 Spring 2005

#5 Acquisition Planning a. Engelbeck pp. 77-133 b. C&E pp. 157-200

3 c. Kahneman, Daniel and Amos Tversky. Intuitive Prediction. (Planning fallacy) http://www.dtic.mil/cgi-bin/GetTRDoc? AD=ADA047747&Location=U2&doc=GetTRDoc.pdf d. FAR Part 7.000 https://www.acquisition.gov/comp/far/05-11/html/Subpart %207_1.html e. DHS Acquisition Planning Requirements, Section 3007 http://www.dhs.gov/xlibrary/assets/opnbiz/cpo_hsam.pdf f. Best Business Practices for Fixed-Price Contracting Defense Business Board FY10-03 http://dbb.defense.gov/pdf/FY10- 03_Best_Business_Practices_Fixed_Price_Contracting.pdf g. Pushing the Envelope. Darden Business Publishing. UV3883 #6 Organizing for Acquisition a. Engelbeck pp. 43-61 b. Cohen and Eimicke pp. 41-60 c. Katzenbach, Jon R. and Douglas K. Smith, The Discipline of Teams. HBR July-AUG 2005. d. USD (A,T&L), Rules Of The Road A Guide For Leading Successful Integrated Product Teams, Oct 1999 e. Wagner, Gary F., and Randall L. White, F-22 Program Integrated Product Development Teams, Program Manager July-August 1995. http://www.dau.mil/pubscats/PubsCats/PM/articles95/wagner.pdf f. Certifying AMRAAM. KSG Case C16-88-845.0 #7 Systems Engineering a. Chapter 13. Condensed GSAM Handbook. Feb 2003. http://www.stsc.hill.af.mil/resources/tech_docs/gsam4/chap13.pdf b. The Value of Systems Engineering http://www.incose.org/secoe/0103/ValueSE- INCOSE04.pdf Second Issue Paper Due c. DoD Integrating-SE-Acquisition https://acc.dau.mil/adl/en- US/423816/file/55794/Integrating-SE-Acquisition-Contracts_guide_121106.pdf d. The Impact of SE on Complex Systems http://sse.stevens.edu/fileadmin/cser/2004/papers/242-Paper152.pdf e. Nelson, Eric M. Open Architecture Technical Principles and Guidelines 1.5.6, Mar 27, 2008 https://acc.dau.mil/adl/en-US/187045/file/34492/OA %20Architectural%20Principles%20and%20Guidelines%20v.1.5.6.pdf f. Boudreau, Michael. Acoustic Rapid COTS Insertion: A Case Study in Spiral Development. 30 October 2006. http://www.acquisitionresearch.org/_files/FY2006/NPS-PM-06-041.pdf g. Brown, Trevor, Matthew Potoski, and David M. Van Slyke. The Challenge of Contracting for Large Complex Projects. IBM Center for the Business of Government. 2008 http://www.businessofgovernment.org/sites/default/files/CoastGuard %20DeepPrgm.pdf h. The Patriot Crisis. KSG Case C16-90-959.0

#8 Life Cycle Product a. DoD Weapon System Acquisition Reform Product Support Assessment, Nov Support 2009

4 Topic for 3rd Issue Paper http://www.ndia.org/Advocacy/LegislativeandFederalIssuesUpdate/Documents Assigned /DoD_Weapon_System_Acquisition_Reform_PSA_19NOV09.pdf b. GAO-03-57 http://www.gao.gov/new.items/d0357.pdf c. Geary, Steve, Scott Koster, Wesley S. Randall, and Jeffrey J. Haynie. Performance-Based Life Cycle Product Support Strategies: Enablers For More Effective Government Participation. Acquisition Research Journal. Oct 2010 http://www.dau.mil/pubscats/PubsCats/AR %20Journal/arj56/Geary_ARJ56.pdf d. Gansler, Jacques and William Lucyshyn, Evaluation of Performance Based Logistics, Aug 2006 e. The F/A F404 Engine: Getting Lean (A). Darden Business Publishing. UVA- C-2268 #9 Acquisition of Services a. Cohen and Eimicke pp. 91-103 b. DSB. Improvements to Services Contracting. March 2011. http://www.acq.osd.mil/dsb/reports/2011-05-Services.pdf c. Czech, Peter and John Muller. Improving Services Acquisition Tradecraft: Services Acquisition Is Not for Amateurs. Defense AT&L, July 2011 http://www.dau.mil/pubscats/ATL%20Docs/July-Aug11/Czech_Mueller.pdf f. GAO. Taking a Strategic Approach to Improving Service Acquisitions. GAO- 02-499T. Mar 7, 2002. http://www.gao.gov/new.items/d02499t.pdf g. Seven Steps to Performance–Based Services Acquisition. https://www.acquisition.gov/comp/seven_steps/library/SevenSteps_execversio n.pdf h. Brown, Trevor L et. al. Managing Public Service Contracts: Aligning Values, Institutions, and Markets. Public Administration Review. May/June 2006 i. Industry-Government Competition. KSG Case C16-94-1241.0 #10 Acquisition of IT a. Chapter 17. Condensed GSAM Handbook. Feb 2003. Acquisition Environment and Regulations. http://www.stsc.hill.af.mil/resources/tech_docs/gsam4/chap17.pdf b. DSB. Acquisition of Information Technology. March 2009 c. Boehm, Barry W. A Spiral Model of Software Development and Enhancement. Computer. May 1988. http://www.cs.umd.edu/class/spring2003/cmsc838p/Process/spiral.pdf d. Chen, Yu-Che and James L. Perry. IT Outsourcing: A Primer for Public Managers. Feb 2003. http://www.businessofgovernment.org/sites/default/files/ITOutsourcing.pdf e. Gansler, Jacques S. and William Lucyshyn Implementing The U.S. Army’s Logistics Modernization Program. August 2009 #11 Strategic Purchasing a. Rendon, Rene, Commodity Sourcing Strategies: Supply Management In Action, http://www.dtic.mil/cgi-bin/GetTRDoc? AD=ADA496642&Location=U2&doc=GetTRDoc.pdf b. Bowman, Dan, Timothy S. Reed, Bryan J. Hudgens and David Searle. DoD is Not IBM: The Challenges of Implementing Strategic Sourcing In Defense Acqusition. 30 April 2006 http://www.dtic.mil/cgi-bin/GetTRDoc? AD=ADA498484&Location=U2&doc=GetTRDoc.pdf c. GAO. Using Spend Analysis to Help Agencies Take a More Strategic Approach to Procurement. GAO-04-870. Sept 2004. http://www.gao.gov/new.items/d04870.pdf d. Moon, M. Jae. State Government E-Procurement in the Information Age: Issues, Practices, and Trends. September 2002 http://www.businessofgovernment.org/sites/default/files/StateGovernmentProcu rement.pdf e. KSG Case C-15-08-1925.0 Experiments in Public Procurement #12 Supporting a. Dunn, Richard L. Contractors on The Battlefield: Resolving The Remaining Contingencies Policy Issues. May, 2010

5 b. Grasso, Valerie Bailey. Defense Logistical Support Contracts in Iraq and Afghanistan: Issues for Congress. CRS Report. September 20, 2010 http://www.fas.org/sgp/crs/natsec/RL33834.pdf c. CBO. Logistics Support for Deployed Military Forces http://www.cbo.gov/ftpdocs/67xx/doc6794/10-20- MilitaryLogisticsSupport.pdf d. Wal-Marts Response to Hurricane Katrina. KSG Case C16-07-1876.0 #13 Alternative Options a. Dunn, Richard L. Injecting New Ideas and New Approaches in Defense Systems: Are “Other Transactions” An Answer? July 2009 b. Gansler, Jacques. Moving Toward Market-Based Government: The Changing Third Issue Paper Due Role of Government as the Provider. IBM Center for the Business of Government. June 2003. c. Gansler, Jacques and William Lucyshyn. Implementing Alternative Sourcing Strategies: Four Case Studies. IBM Center for the Business of Government. Oct 2004 d. The Boeing Tanker Lease Deal (A). KSG Case CR-16-06-1845.0 #14 Program Management a. Cohen and Eimicke pp. 119-157 b. Army COR Manual c. Mills, Steve, Scott Fouse, and Allen Green. Creating and Sustaining an Effective Government–Defense Industry Partnership. Acquisition Research Journal. July 2011 d. Kwak, Young Hoon and Frank T. Anbari. An Introduction to Earned Value Management (EVM). IBM Center for the Business of Government. 2010. http://www.businessofgovernment.org/sites/default/files/Project %20Management%20in%20Government%20Report.pdf e. Matta, N.F., & Ashkenas, R.N. (2003). Why good projects fail anyway. Harvard Business Review. 81(9), 109-114. f. Virginia-Class Submarine: Two for Four in 2012 (A). Darden Business Publishing. UVA-C-1384 #15 Student Presentations Final Exam