An Acquisition Speed Manifesto

Brian Schultz

We hear it all the time: We need to speed up our DoD acquisition processes and get capabilities fielded more rapidly. With great power competition, the urgency to act increases significantly. The Adaptive Acquisition Framework provides the Department of Defense (DoD) with new authorities, pathways, and flexibilities that can enable greater speed. However, we have significant work to do as evidenced by an eroding technological edge over our potential adversaries. 

DoD can learn valuable speed lessons from the commercial sector. Investment in new commercial technology dwarfs the amount that DoD spends each year, including the investments from traditional defense companies. With these new commercial technologies come new methods and techniques that may be relevant in our domain. 

We saw this with Agile DevSecOps, which combines software development (Dev), security (Sec), and operations (Ops). After several successful pilot programs, DoD implemented the software pathway into the acquisition system. As the quote above from Dave Girouard suggests, industry understands the importance of speed because it provides a competitive edge. The value of speed also applies to acquisition, and we must incorporate it or face significant risks in future conflicts. Perhaps a manifesto can help generate greater speed. 

What is the purpose of a manifesto? A manifesto can be a very powerful tool to articulate a new vision. For example, 17 software developers met in 2001 to discuss software development methods. The software experts were pursuing an alternative to the existing software practices that they regarded as ineffective. The group produced a document known as the Agile Manifesto. It identifies four key values and 12 principles that its authors believe software developers should use to guide their work. 

That manifesto has had an incredible impact throughout the software development community over the last three decades. Many believe that it accelerated an industry paradigm shift in software development that continues to evolve. If you read the manifesto, (agilemanifesto.org), you will see that it is still very relevant. 

The following is the proposed “Acquisition Speed Manifesto.” It follows a format similar to that of the Agile Manifesto, with over-arching values followed by principles. The manifesto does not provide the “how to do it” because it is not intended to be that prescriptive. As in the case of the Agile Manifesto, if we adopt the values and implement the principles, the results will follow.

Speed is the ultimate weapon in business. All else being equal, the fastest company in any market will win. Speed is a defining characteristic—if not the defining characteristic—of the leader in virtually every industry you look at. 

—Dave Girouard
CEO of Upstart (a personal finance startup) and former president of Google Enterprise Apps

A Notional Acquisition Speed Manifesto

We value:

Capabilities over programs.

Many have advocated for a portfolio-management-based acquisition model, including the Section 809 Panel. As we look at mission portfolios and evolving operational needs, we should prioritize investments that fill mission gaps at the expense of individual programs. This highlights the importance of more effective portfolio management versus the current incentives associated with a program-centric acquisition model.

Trust over doubt.

The importance of trust as it relates to speed is not a new revelation. In 1943, Kelly Johnson, chief engineer at Lockheed, developed a jet fighter to counter the growing threat from Germany in World War II. He led a small team that designed and built from scratch the XP-80 Shooting Star in just 143 days. One of his management rules was “Mutual trust between the military and the contractor with very close cooperation and liaison on a day-to-day basis.”

Those familiar with Stephen M.R. Covey’s book, Speed of Trust: The One Thing That Changes Everything may recall that lack of trust results in slow bureaucratic processes and higher costs. On the other hand, providing and sustaining trust can be a game changer for many organizations, both in industry and in the public sector. Trusting others in a compliance-oriented system requires a culture change at all levels. Individuals and organizations earn trust based on their expertise and credibility. We should accord trust to those who have demonstrated that they are worthy of it.

Informed opportunity management over risk aversion.

We must value risk-taking but be sure to make informed decisions and manage the risks. Think of the behaviors of start-up companies and experienced commercial-sector innovators. They often must take high risks in order to succeed. We can view risks in the same context as opportunities because the investment coincides with potential future return on the investment.

Meaningful performance over cost.

We must not sacrifice high-quality systems, and we must be willing to pay a premium where speed and performance are priorities. Speed should not lead to poor quality or degraded performance. Faster work will require greater discipline. But we do not seek enhanced performance that provides little or no operational benefit.

Empowerment over bureaucracy.

Empowerment must be an integral element of our culture and processes. It does not mean delegating everything and reducing leadership involvement. On the contrary, it may involve greater coaching, support, and investment from leaders. There is no sustained speed without empowerment.

We adhere to these principles:

1. Acquisition strategies must consider and implement alternatives that incorporate greater speed.

Speed must be a key element of a program’s strategy. Acquisition strategies determine priorities, incentives, risks and opportunities, business arrangements, pathways, and other key factors. If going faster is the priority, then this over-arching consideration should drive acquisition strategies. Program managers have several tools and techniques to drive faster contracting and capability delivery. Some examples include schedule concurrency, greater use of commercial off-the-shelf or government off-the-shelf items, rapid prototyping, streamlined contracting procedures, flexible business arrangements, and use of authorities within the Adaptive Acquisition Framework pathways. Not every program strategy needs to incorporate speed, but all should consider the possibilities!

2. Leaders must create and sustain acquisition execution and decision support systems based on a foundation of trust.

Trust enables speed and can lower costs. Think of all the systems and processes in acquisition that exist solely because of a lack of trust. These checks slow programs and communicate distrust throughout the enterprise. Just like the concept of designing in quality at the beginning of a product life cycle, we must incorporate trust behaviors in our acquisition decision systems from start to finish. These include processes such as governance, decision reviews, financial management, and requirements.

3. We will implement robust and continuous opportunity management.

Industry can teach us about the value of opportunity management. Capitalizing on high payoff opportunities is not a random occurrence. Industry allocates significant effort to manage and sometimes even create new opportunities. While we have policy guidance on opportunity management included in the DoD Risk, Issue, and Opportunity (RIO) Management Guide of January 2017, how many programs actually implement an effective opportunity management process and make it a priority?

4. The requirements process must emphasize speed and flexibility in all “swim lanes and pathways.”

It is no longer realistic to lock down requirements and expect them to remain stable over several years. We know that requirements will change. Therefore, we must develop and manage requirements processes that can accommodate rapid changes and accelerated delivery.

5. Speed will be included as a key objective in strategic plans.

Organizations should recognize that significant change takes time and effort. Greater speed can involve modifying processes, techniques, and organizational goals, which should be part of a strategic plan. Leaders should establish clear objectives that measure and track speed in all processes.

6. We must obtain financial management flexibility that enables rapid pivots to new capabilities.

Lack of funding flexibility is a big issue because existing financial rules severely limit the rapid resource shifts needed to respond to new threats and opportunities. The acquisition environment has witnessed unprecedented change in recent years, and our rules and procedures must change if we want to maintain a decisive edge on the battlefield.

7. People are our greatest asset. They will deliver if we provide them the necessary vision, tools, and support.

Leaders at all levels can inspire their people to meet the new imperative. However, it will not happen unless we give them the opportunity to succeed. 

The Way Ahead

There is no easy solution for speed, and we have many obstacles to overcome: cumbersome processes, lack of financial management flexibility, a program-centric (rather than portfolio-based) model, risk aversion, inadequate strategies, poor planning, and other issues. We can overcome these obstacles with a commitment to adopting the right values and principles. 

The intent of this notional manifesto is to start a conversation. What is missing? What is included that does not belong? What should we change? 

As we embark on this journey, we should consider the example of an athlete in training. The athlete prepares for future events by devoting significant training time to fundamentals and various drills to build skill, strength, and endurance. This training may start with simple movements such as stretching and short exercises. Over time, the athlete gains strength, greater skill, and increased speed. If the athlete pushes too hard, too soon, an injury is more likely and could result in loss of the benefit of any previous effort. 

DoD acquisition can follow a similar model, starting with small fundamental steps such as pilot programs and then growing to more advanced sprints! The time to start the journey is now since we did not start yesterday.

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SCHULTZ is a professor of Program Management and an executive coach in DAU’s Capital and Northeast Region at Fort Belvoir, Virginia. 

The author can be contacted at [email protected].

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 author and the magazine.