Design for Sustainment: Governance Engineering in Major Acquisition Programs

Abstract

During acquisition for a sustainment-dominated, major capital asset, decision-making and action to develop the sustainment system must begin early in the acquisition process to sufficiently align the necessary integrated logistics support demanded by these systems. Effective governance improves the likelihood of success for delivery of the asset and accompanying sustainment system to ensure the asset meets expected performance and remains functional over its planned decades-long service life. The service life of a Navy vessel can range from 25 to 50 years. In this case study, we examine the operation of the governance system for major maritime acquisitions, wherein a fleet of multi-billion-dollar capital assets are acquired and sustained. In acquisition of sustainment-dominated systems, an effective governance structure is imperative for providing necessary policy, leadership, resources, and management. In a recursive organizational structure, each viable system contains, and must be contained within, a viable system. This theorem implies that integration and alignment at the next level of recursion is also needed, as well as influence when beneficial to maintaining viability of the total system. Sustainment systems for defense assets of similar financial caliber historically are troubled over their life cycle as programs compete with others to proactively plan for adequate product support. Organizations are challenged to invest in future sustainment, while limited resources are allocated to acquiring new capabilities and maintaining current capabilities (assets). All nine meta-functions described in the Complex System Governance Reference Model have been exercised in a new sustainment system and provide a framework for beneficially influencing program outcomes. This work-in-progress uncovers features of the CSG Reference Model as they continue to influence program decision and action over time. We report on the efforts to use agile development to develop a pilot sustainment system to provide integrated logistics support to the future fleet. This paper explores a model for necessary governance to develop and maintain governance as an organizational capability to sustain high-value capital assets.