Dod and Commercial Advanced Waveform Developments and Programs with Multiple Nunn-Mccurdy Breaches
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This electronic representation of RAND intellectual property is provided for non-commercial use only. Unauthorized posting of RAND electronic documents to a non-RAND website is prohibited. RAND electronic documents are protected under copyright law. Permission is required from RAND to reproduce, or reuse in another form, any of our research documents for commercial use. For information on reprint and linking permissions, please see RAND Permissions. This product is part of the RAND Corporation monograph series. RAND monographs present major research findings that address the challenges facing the public and private sectors. All RAND mono- graphs undergo rigorous peer review to ensure high standards for research quality and objectivity. MARK V. A RENA, IRV BLICKSTEIN, DANIEL GONZALES, SARAH HARTING, JENNIFER LAMPING LEWIS, MICHAEL MCGEE, MEGAN MCKERNAN, CHARLES NEMFAKOS, JAN OSBURG, RENA RUDAVSKY, JERRY M. SOLLINGER DOD AND COMMERCIAL ADVANCED WAVEFORM DEVELOPMENTS AND PROGRAMS WITH MULTIPLE NUNN-MCCURDY BREACHES VOLUME 5 NATIONAL DEFENSE RESEARCH INSTITUTE MARK V. ARENA, IRV BLICKSTEIN, DANIEL GONZALES, SARAH HARTING, JENNIFER LAMPING LEWIS, MICHAEL MCGEE, MEGAN MCKERNAN, CHARLES NEMFAKOS, JAN OSBURG, RENA RUDAVSKY, JERRY M. SOLLINGER DOD AND COMMERCIAL ADVANCED WAVEFORM DEVELOPMENTS AND PROGRAMS WITH MULTIPLE NUNN-MCCURDY BREACHES VOLUME 5 Prepared for the Office of the Secretary of Defense Approved for public release; distribution unlimited Approved for public release; distribution unlimited NATIONAL DEFENSE RESEARCH INSTITUTE For more information on this publication, visit www.rand.org/t/MG1171z5 Library of Congress Cataloging-in-Publication Data is available for this publication. Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2014 RAND Corporation R® is a registered trademark. 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RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. Support RAND Make a tax-deductible charitable contribution at www.rand.org/giving/contribute www.rand.org Preface This report presents the results of two RAND studies. One compares changes in requirements, technical risk, and cost growth encountered in the development of the key software products produced by the Joint Tactical Radio System (JTRS) network enterprise domain (NED) program with similar elements for the commercial cell phone fourth-generation (4G) long-term evolution (LTE) waveform. The study examines how JTRS networking waveforms’ technical and associated program risks were managed, the cost of developing JTRS networking waveforms, and how technical risks and chal- lenging requirements contributed to schedule and cost increases. The objective of this effort was to identify differences between the program management factors and cost structures and investigate the underlying causes of these differences. The second study analyzes programs that have had multiple Nunn-McCurdy breaches (that is, military acquisition programs that have exceeded certain cost thresholds) in an attempt to iden- tify characteristics of programs that overrun their budgets. This research was sponsored by the Performance Assessments and Root Cause Analysis (PARCA) office, in the Office of the Assistant Secretary of Defense for Acqui- sition, and conducted within the Acquisition and Technology Policy Center of the RAND National Defense Research Institute, a federally funded research and develop- ment center sponsored by the Office of the Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the Navy, the Marine Corps, the defense agencies, and the defense Intelligence Community. For more information on the RAND Acquisition and Technology Policy Center, see http://www.rand.org/nsrd/ndri/centers/atp.html or contact the director (contact information is provided on the web page). iii Contents Preface ................................................................................................. iii Figures ............................................................................................... vii Tables .................................................................................................. ix Summary ............................................................................................. xi Acknowledgments ..................................................................................xix Abbreviations ........................................................................................xxi CHaptER ONE Joint Tactical Radio System ........................................................................1 Background of the JTRS Program ...................................................................1 Objectives of the Research ............................................................................2 Analytical Approach ...................................................................................3 Analytical Limitations .................................................................................5 Architecture ............................................................................................6 JTRS Hardware ......................................................................................9 JTRS Security Architecture ...................................................................... 10 JTRS GMR Software Architecture .............................................................. 11 Long-Term Evolution Architecture ................................................................ 13 eNode B ............................................................................................. 13 LTE Evolved Packet System ...................................................................... 16 LTE Security Architecture ........................................................................ 18 LTE Software Architecture ....................................................................... 19 LTE Network and User Equipment Deployments ............................................. 19 Comparison of Development Approaches and Organizational Structures ................... 25 JTRS Development Organizations .............................................................. 25 LTE Development Organizations ................................................................ 28 Summary ............................................................................................ 30 A Comparison of Technical Performance and Development Time Lines .................... 31 Technical Performance Comparison ............................................................ 31 Comparison of Development Time Lines....................................................... 35 JTRS and WNW .................................................................................. 35 v vi DoD and Commercial Advanced Waveform Developments and Programs with Nunn-McCurdy Breaches LTE and SAE ....................................................................................... 38 Cost Comparison .................................................................................... 39 JTRS Development Costs ........................................................................ 39 LTE Development Costs .......................................................................... 41 Accounting for Competition and Redundancy ................................................ 48 Summary ........................................................................................... 51 Conclusions ........................................................................................... 52 Findings ............................................................................................. 53 Recommendations ................................................................................