addressing the barriers to agile development in dod · structuring an agile program ... agile...
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The author's affiliation with The MITRE Corporation is provided for identification purposes only, and is not intended to convey or imply MITRE's concurrence with, or support for, the positions, opinions or viewpoints expressed by the author
Su Chang [email protected] Pete Modigliani [email protected] May 2015
Addressing the Barriers to Agile Development in DoD
MITRE Defense Agile Acquisition Guide
Naval Postgraduate School’s 2015 Defense Acquisition Research Symposium
Approved for Public Release; Distribution Unlimited. Case Number 15-1457
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Purpose / Outline
How DoD Acquisition professionals can apply Agile concepts
within the unique and complex Defense Acquisition Environment DoD IT Acquisition Challenges Agile Overview Program Structure Requirements Contracting
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
DoD IT Acquisition Challenges
Change in IT technology and operations is outpacing DoD IT acquisition development IT programs are subject to extensive documentation, reviews,
and oversight that inhibits speed and agility needed for IT Major DoD systems average 38% cost, 27 month schedule
overrun with >$1B/year spent on programs that are cancelled* Congress is demanding DoD to reform IT acquisition
– Early and continual user involvement – Multiple, rapidly executed capability releases – Early, successful prototypes; evolutionary approach – Modular open systems approach
DoD: Delivering Yesterday’s Technology Tomorrow
* Assessments of Selected Weapon Programs, GAO-14-340SP: Published: Mar 31, 2014
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Agile Acquisition
Small, Frequent Releases
Iteratively Developed
Review Working Software
Vice Extensive Docs
Responsive to Changes
Operations, Technology, Budgets
Active User Involvement
To Ensure High Ops Value
Small, dynamic, collaborative Gov’t/Industry teams focused on:
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
DoD Barriers to Agile Acquisition
Heavily regulated environment of acquisition policies and laws Bureaucratic, laborious, and slow processes Command-and-control governance structure and authorities
Agile Runs Counter to DoD’s Acquisition Environment
• Iterative releases vs big bang waterfall • Working software vs extensive docs • Respond to changes vs upfront plans
of budgets, requirements, designs
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Programs Should Consider Agile When…
Requirements can be decomposed into small tasks
Ops environment supports small, frequent capability deliveries
Users can engage in development on CONOPS and feedback
Programs can use existing infrastructure, focus on applications
Industry has relevant domain expertise in Agile practices
Decision authority supports Agile and tailored processes
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Release Length Based on Program, Ops, and Technical Risk
Structuring an Agile Program
Notional: 6 Month Release with 4-Week Sprints – Continual development, integration, and testing – Monthly demonstration of capabilities to users
Gov’t testers, certifiers, and users involved early and often – Minimizes work and surprises at the end of the release
Time Boxed Release
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Potential Agile Structure Materiel
Development Decision
Materiel Solution Analysis Phase
Development Requirements RFP Release
Validation Decision
Technology Maturation and Risk Reduction Phase
Initial Operational Capability
Engineering and Manufacturing Development Phase
Full Operational Capability
Analyze trades of cost, performance risks and schedule.
Reduce risks, mature technologies, conduct design I requi rements trades, finalize requi rements and strategies.
Develop, build, and test system to verify all requirements are met and ready for production or deployment.
Analysis of Alternatives
1---=-..:.=:::..:..:.:=.=...;:..;:=---i Develop Technical Baseline
Develop Initial Ac uisition Strate
Competitive Prototypes
Mature Acquisition Strategy
Market Research
Estimate Costs
PDR
Contract Prep RFP
Plan Deployment Decision
Operations and Sustainment
Manage Contract(s)
Oeplo ment Oecisi n
MITRE
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Agile Requirements Backlog
Sprint
An evolving, prioritized queue of requirements Integrates operational and technical requirements Actively managed with user inputs and reviews
Development team commits to scope of work for a sprint Sprint scope is locked, while release scope may change Sprint demos may identify new features or defects which
would be added to the release or program backlogs
1
Highest Priority Requirements
1
Program Backlog
Release Backlog
1
Highest Priority Requirements
Sprint Backlog
Develop, integrate, and test
Demo
User Feedback, Defects, and New Features
User
n
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
JCIDS IT Box Model
Streamlined requirements process for software >$15M JROC approves IS-ICD – delegates approvals of follow-on docs
– Follow-on docs tailored scope and content
Release 1 (6-12 Months)
Sprint 1 1 Month
Release Backlog
Sprint Backlog
IS ICD
RDP 1
CD 1
Sprint 2 1 Month
Sprint 3 1 Month
Sprint n 1 Month Fielding
Decision
RDP 2 ICD: Initial Capabilities Document RDP: Requirements Definition Package CD: Capability Drop
Sprint Backlog
Release Backlog
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Consider a PEO, portfolio, or enterprise-level contract vehicle – Streamlined contracting processes result in faster awards, deliveries – Standardized, effective, and efficient contract management
Contract Vehicles
Multiple Award Contract Single IDIQ Contract GSA BPA
IDIQ contract awarded to multiple contractors who compete for work
via task orders
IDIQ contract awarded to single contractor with task orders to develop releases
Existing GSA Schedule contract (eg. Sched 70) w/releases developed
via call orders
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Contracting for Agile – Service vs Product
Services (FAR Part 37) Product-based
Pay for the time and expertise of an Agile development contractor
Contract for a defined software delivery product
• Fixed priced • Cost-reimbursement term • T&M
• Firm Fixed Price • Cost-reimbursement completion
• Contractor is selected based on the strength of the development team
• Enables a teaming environment between the Government and contractor
• Appropriate when the Government wants to drive the development strategy
• Responsive to requirements changes • Close collaboration required to ensure an
integrated solution is delivered
• Contractor selected on technical solution • Requires upfront requirements definition
for contractor cost estimates • Difficult to hold contractor accountable for
delivery by directing Agile methods • Requirements changes requires contract
negotiation, ECPs, and/or mods • Diminishes flexibility and negotiation
power of the Government
Best option for Agile Very difficult for Agile
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Services Contract Type
Contract Type Pros Cons
FFP Services
• Generally preferred contract type in DoD
• Easiest contract type to manage
• Requires deliverables for payment (e.g., monthly report) unless progress payments are authorized
• Contract amount cannot be changed without contract modification
• Cannot easily change labor mix and # of hours
Cost Reimbursement Term (Level of Effort)
• Flexibility to change labor mix and hours under contract ceiling
• Does not require a deliverable for payment
• Contract ceiling may be difficult to establish, which can affect upfront fee determination
• Requires closer Gov’t monitoring • Requires a certified cost accounting system
among other FAR requirements • Less incentivize for contractor to control
Time-and-Material (T&M) (Labor Hour)
• Flexibility to change labor mix and hours under contract ceiling
• Does not require a deliverable for payment
• Unpopular contract type across the Gov’t • Requires close Gov’t monitoring • Contractor is not incentivized to control costs
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Summary
Using Agile development is an attractive option for IT programs – Regular capability deliveries – Responsive to changes in operations, tech, and budgets – Active user involvement and empowered teams Structure 6-12 month releases and tailor processes Dynamic and iterative requirements management Portfolio services contracting for industry partnership
Tailoring DoD acquisitions to enable Agile adoption, successful IT
For additional info, see MITRE Defense Agile Acquisition Guide
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BACKUP SLIDES
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Potential Agile Structure
FY14 FY15 FY16 FY17 FY18 FY19
PEO Reviews /) "-v ./
Program l M t .
1 Back~og Development RFP
a ene Validati~n Release Decision /', Developmen~ <)'"- /', /..,\ / .. , \ ) Decision , / \ ) '.. /
Solution Program Ana lysis Planning
Technology Development, Competitive Prototyping, Architecture Development and Evolution
Release Details Release c
I . 11.0
P annmg ·~
Design Review
Q
Program Backlog - Continual Grooming and Prioritization
Release Design, Development, Integration, Test, and Certification
Sprint 1 Sprint 2 Sprint 3 Sprint 4 Sprint n Deployment Decision
MITRE
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Potential Contract Construct
Portfolio-level agile development contract – Quick execution of orders for each release (e.g., 6 months) – Single award for quick orders and consistent contractor – T&M for max flexibility (transition to FFP or CR after initial period) – Scope/requirements can adjust over time Services-based contract
– Contract for the services of the development team – Cost-boxed and time-boxed releases and sprints – Requirements in product backlog are flexible – Structure releases (e.g. 6 months) via separate task orders
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Agile Overview
Leading software methodology – begin in 2001 Core Elements
– Small, frequent capability releases – Valuing working software over comprehensive documentation – Responding rapidly to changes in ops, technology, and budgets – Actively involving users throughout development Small, empowered, collaborative teams
– Follow disciplined process – Dynamic, tailored, and evolving – Continual process improvement
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© 2015 The MITRE Corporation. 'Approved for Public Release; Distribution Unlimited. Case Number 15-1457'
Five Prerequisites for Agile Acquisition
1. Small, frequent capability releases 2. Embrace change 3. Partnership: requirements, acquisition, contractor 4. Small, empowered, high-performing teams 5. Leverage a portfolio structure