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Uni International 300 N, ZEEB ROAD, ANN ARBOR, Ml 48106 18 BEDFORD ROW, LONDON WC1R 4EJ, ENGLAND 8016937 W a l l , Wil l ia m Ca r t e r , Jr . AN, ANALYSIS OF MANAGEMENT CONTROL IN A COMPLEX LARGE- SCALE ENDEAVOR: THE SAFEGUARD BALLISTIC MISSILE DEFENSE SYSTEM PROGRAM The University o f Oklahoma Ph.D. 1978 University Microfilms I n ternst i O n si 300 N. Zeeb Road, Ann Arbor, MI 48106 18 Bedford Row, London WCIR 4EJ, England THE UNIVERSITY OF OKLAHOMA GRADUATE COLLEGE AN ANALYSIS OF MANAGEMENT CONTROL IN A COMPLEX LARGE-SCALE ENDEAVOR; THE SAFEGUARD BALLISTIC MISSILE DEFENSE SYSTEM PROGRAM A DISSERTATION SUBMITTED TO THE GRADUATE FACULTY in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY BY WILLIAM CARTER WALL, JR. Norman, Oklahoma 1978 Copyright 1978 William C. Wall, Jr. AN ANALYSIS OF MANAGEMENT CONTROL IN A COMPLEX LARGE-SCALE ENDEAVOR: THE SAFEGUARD BALLISTIC MISSILE DEFENSE SYSTEM PROGRAM APPROVED BY DISSERTATION COMMITTEE TABLE OF CONTENTS PAGE LIST OF ILLU ST R A T IO N S...................................................................................... v LIST OF T A B L E S ........................................................................................................ vi Chapter I. INTRODUCTION ............................................................................... 1 Purpose Research Methodology Boundaries of Inquiry Major Sources of Material Relationship to Similar Studies Organization of the Study II. MANAGEMENT CONTROL: SOME HISTORICAL MILESTONES............................................................................................ 34 Ancient Thought and Practice Middle Ages and the Renaissance Period of Transition Early Modern Thought and Its Amplification Recent Initiatives Emerging Patterns III. A HISTORY OF BMD MISSION AND MANAGEMENT................. 107 Anti-Missile Missile Feasibility Nike-X System Manager Sentinel Decision Safeguard Decision ABM Treaty Termination and Deactivation Epilogue IV. THE PARAMETER-PHASE-LEVEL (PPL) ANALYSIS MATRIX.................................................................................................... 161 Conceptual Foundation Examination Considerations Examination Methodology Conclusion 111 V. THE COST PARAMETER ................................................................... 195 Cost Control Considerations Cost Parameter Analysis Overview RDT<ScE Phase Production Phase Deployment Phase Termination Phase Cost Control in Perspective VI. THE SCHEDULE PARAMETER.................................................................234 Schedule Control Considerations Schedule Parameter Analysis Overview RDT&E Phase Production Phase Deployment Phase Termination Phase Schedule Control in Perspective VII. THE TECHNICAL PERFORMANCE PARAMETER............................. 271 Technical Performance Considerations Technical Performance Analysis Overview RDT&E Phase Production Phase Deployment Phase Termination Phase Technical Performance Control in Perspective VIII. SUMMARY AND CONCLUSIONS............................................................336 Scope of Chapter Need for Integrated Management Control Management Control Throughout The Life Cycle Management Control Base Line Management Control in Perspective APPENDICES I. GLOSSARY....................................................................................................... 361 II. WORK BREAKDOWN STRU CTU RE....................................................... 364 BIBLIOGRAPHY.................................................................................................................... 368 IV LIST OF ILLUSTRATIONS FIGURE PAGE 1. Param eter - Phase - Level (PPL) Analysis M a t r i x .................... 11 2. Decision/Organization Hierarchy .................................................. 14 3. PPL Analysis Matrix Cell Identification ..................................... 17 4. Management Control as Integrative Force ................................. 29 5. Summary Evolution of United States BMD Activity .... 159 6. Parameter Dimension of PPL Analysis Matrix ............................ 164 7. Phase Dimension of PPL Analysis Matrix ..................................... 170 8. Relative Sequencing of Program Life-Cycle Phases .... 172 9. Level Dimension of PPL Analysis Matrix ...........................................177 10. Decision - Making Level Considerations ..................................... 181 11. Fiscal Year Relationships Between Budget and Programming Segments of P P B S.......................................................205 12. Planning, Programming, and Budgeting Relationships. 207 13. Conceptualization of a Weapon System ...............................................279 14. Execution of the Technical P rogram ................................................... 281 15. Relative Importance of the Cost, Schedule, and Technical Performance Parameters for the Public, Congressional, and Service Communities Over Time .................................................. 342 16. Open PPL Analysis M a tr ix .....................................................................347 17. PPL Analysis Matrix Major C ells ........................................................349 18. PPL Analysis Matrix Minor C ells ........................................................351 19. Major Elements of Program Management...........................................353 20. Integrated Program Management in Perspective .............................358 21. Work Breakdown S tru c tu re .....................................................................365 LIST OF TABLES TABLE PAGE > 1. Summary of Safeguard Approved Program Fiscal Y ears 1968 - 1977, Inclusive (Dollars in Millions as of Dec 76) ............................................................................................ 114 2. Examination Results Common to all PPL Analysis Matrix Cells in the Cost Param eter ................................................ 217 3. Examination Results Common to all PPL Analysis Matrix Cells in the Schedule Param eter ........................................ 252 4. Establishment, Control, and Emergency Reporting Criteria for Safeguard Milestones ..................................................... 260 5. Examination Results Common to all PPL Analysis Matrix Cells in the Technical Performance Parameter .... 294 VI CHAPTER I INTRODUCTION Management control is an integrative force in the management process and a vehicle for feedback in the management cycle. In a widely embraced delineation of the principal functions of management, the control function—in application with the other four functions of planning, organizing, staffing, and directing—facilitates the synergism that results from cooperative interaction of the functions. Management control, as an activity, is a tool of ail of the functions of management and, as a function, is a user of the tools of the other four functions. Viewed in this context, the control function introduces the element of closure to management action, enhances rationality in the decision­ making process, and underscores the search for order in complex endeavors. Purpose The manifold tools and techniques of management control are a reflection of many managers' recognition of the need to measure performance and redirect deviations in diverse and complex managerial environments. The array of currently available tools and techniques ranges in complexity from simplistic to intricate; in precision, from stochastic to deterministic; in cost of ^Harold Koontz and Cyril J. O'Donnell, eds., Management: A Book of Readings, 3d ed. (New York: McGraw-Hill Book Company, 1972), pp. xi, 649. development and operation,