SEC. 836. DIGITAL MODERNIZATION OF
ANALYTICAL AND DECISION-SUPPORT PROCESSES FOR MANAGING AND
OVERSEEING DEPARTMENT OF DEFENSE ACQUISITION PROGRAMS.
(a) Digital Data Management and Analytics Capabilities.--
(1) In general.--The Secretary of
Defense shall iteratively develop and integrate advanced
digital data management and analytics capabilities, consistent
with private sector best practices, that--
(A) integrate all aspects of the
defense acquisition system, including the development of
capability requirements, research, design, development,
testing, evaluation, acquisition, management, operations,
and sustainment of systems;
(B) facilitate the management and
analysis of all relevant data generated during the
development of capability requirements, research, design,
development, testing, evaluation, acquisition, operations,
and sustainment of systems;
(C) enable the use of such data to
inform further development, acquisition, management and
oversight of such systems, including portfolio management;
and(D) include software capabilities to collect, transport,
organize, manage, make available, and analyze relevant data
throughout the life cycle of defense acquisition programs,
including any data needed to support individual and
portfolio management of acquisition programs.
(2) Requirements.--The capabilities
developed under paragraph (1) shall--
(A) be accessible to, and useable
by, individuals throughout the Department of Defense who
have responsibilities relating to activities described in
clauses (A) through (C) of paragraph (1);
(B) enable the development, use,
curation, and maintenance of original form and real-time
digital systems by--
(i) ensuring shared access to data
within the Department;
(ii) supplying data to digital
engineering models for use in the defense acquisition,
sustainment, and portfolio management processes; and
(iii) supplying data to testing
infrastructure and software to support automated
approaches for testing, evaluation, and deployment
throughout the defense acquisition, sustainment, and
portfolio management processes; and
(C) feature--
(i) improved data management and
sharing processes;
(ii) timely, high-quality,
transparent, and actionable analyses; and
(iii) analytical models and
simulations.
(3) Enabling data infrastructure,
tools, and processes.--In developing the capability required
under paragraph (1), the Secretary of Defense shall--
(A) move supporting processes and
the data associated with such processes from analog to
digital format, including planning and reporting processes;
(B) make new and legacy data more
accessible to, and usable by, appropriate employees and
contractors (at any tier) of the Department of Defense and
members of the Armed Forces, including through migration of
program and other documentation into digital formats;
(C) modernize the query, collection,
storage, retrieval, reporting, and analysis capabilities for
stakeholders within the Department, including research
entities, Program Management Offices, analytic
organizations, oversight staff, and decision makers;
(D) automate data collection and
storage to minimize or eliminate manual data entry or manual
reporting;
(E) enable employees and other
appropriate users to access data from all relevant data
sources, including through--
(i) streamlining data access
privileges;
(ii) sharing of appropriate data
between and among Federal Government and contractor
information systems; and
(iii) enabling timely and
continuous data collection and sharing from all
appropriate personnel, including contractors;
(F) modernize existing enterprise
information systems to enable interoperability consistent
with technical best practices; and
(G) provide capabilities and
platforms to enable continuous development and integration
of software using public and private sector best practices.
(b) Portfolio Management.--The Secretary
of Defense shall establish capabilities for robust, effective,
and data-driven portfolio management described in subsection
(a)(1)(C), using the capability established in this section, to
improve the Department of Defense-wide assessment, management,
and optimization of the investments in weapon systems of the
Department, including through consolidation of duplicate or
similar weapon system programs.
(c) Demonstration Activities.--
(1) In general.--The Secretary of
Defense shall carry out activities to demonstrate the
capability required under subsection (a).
(2) Activity selection.--Not later
than July 15, 2021, the Secretary of Defense shall select
decision support processes and individual acquisition programs
to participate in the demonstration activities under paragraph
(1), including--
(A) decision support processes,
including--
(i) portfolio management as
described in subsection (b);
(ii) one or more acquisition data
management test cases; and
(iii) one or more development and
test modeling and simulation test cases to demonstrate the
ability to collect data from tests and operations in the
field, and feed the data back into models and simulations
for better software development and testing;
(B) individual acquisition programs
representing--
(i) one or more defense business
systems;
(ii) one or more command and
control systems;
(iii) one or more middle tier of
acquisition programs;
(iv) programs featuring a
cost-plus contract type, and a fixed-price contract type,
and a transaction authorized under section 2371 or 2371b
of title 10, United States Code; and
(v) at least one program in each
military department.
(3) Execution of demonstration
activities.--As part of the demonstration activities under
paragraph (1), the Secretary shall--
(A) conduct a comparative analysis
that assesses the risks and benefits of the digital
management and analytics capability used in each of the
programs participating in the demonstration activities
relative to the traditional data collection, reporting,
exposing, and analysis approaches of the Department;
(B) ensure that the intellectual
property strategy for each of the programs participating in
the demonstration activities is best aligned to meet the
goals of the program; and
(C) develop a workforce and
infrastructure plan to support any new policies and guidance
implemented in connection with the demonstration activities,
including any policies and guidance implemented after the
completion of such activities.
(d) Policies and Guidance Required.--Not
later than March 15, 2022, based on the results of the
demonstration activities carried out under subsection (c), the
Secretary of Defense shall issue or modify policies and guidance
to--
(1) promote the use of digital data
management and analytics capabilities; and
(2) address roles, responsibilities,
and procedures relating to such capabilities.
(e) Steering Committee.--
(1) In general.--The Secretary of
Defense shall establish a steering committee to assist the
Secretary in carrying out subsections (a) through (c).
(2) Membership.--The steering
committee shall be composed of the following members or their
designees:
(A) The Deputy Secretary of Defense.
(B) The Chief Information Officer.
(C) The Director of Cost Assessment
and Program Evaluation.
(D) The Under Secretary of Defense
for Research and Engineering.
(E) The Under Secretary of Defense
for Acquisition and Sustainment.
(F) The Director of Operational Test
and Evaluation.
(G) The Service Acquisition
Executives.
(H) The Director for Force
Structure, Resources, and Assessment of the Joint Staff.
(I) The Director of the Defense
Digital Service.
(J) Such other officials of the
Department of Defense as the Secretary determines
appropriate.
(f) Independent Assessments.--
(1) Initial assessment.--
(A) In general.--The Defense
Innovation Board, in consultation with the Defense Digital
Service, shall conduct an independent assessment and
cost-benefits analysis to identify recommended approaches
for the implementation of subsections (a) through (c).
(B) Elements.--The assessment under
subparagraph (A) shall include the following:
(i) A plan for the development and
implementation of the capabilities required under
subsection (a), including a plan for any procurement that
may be required as part of such development and
implementation.
(ii) An independent cost
assessment of the total estimated cost of developing and
implementing the capability, as well as an assessment of
any potential cost savings.
(iii) An independent estimate of
the schedule for the development approach, and order of
priorities for implementation of the capability, including
a reasonable estimate of the dates on which the capability
can be expected to achieve initial operational capability
and full operational capability, respectively.
(iv) A recommendation identifying
the office or other organization of the Department of
Defense that would be most appropriate to manage and
execute the capability.
(C) Report.--Not later than July 15,
2021, the Defense Innovation Board, in consultation with the
Defense Digital Service, shall submit to the Secretary of
Defense and the congressional defense committees a report on
the findings of the assessment under subparagraph (A),
including the findings of the assessment with respect to
each element specified in subparagraph (B).
(2) Second assessment.--
(A) In general.--Not later than
March 15, 2023, the Defense Innovation Board and the Defense
Science Board shall jointly complete an independent
assessment of the progress of the Secretary in implementing
subsections (a) through (c). The Secretary of Defense shall
ensure that the Defense Innovation Board and the Defense
Science Board have access to the resources, data, and
information necessary to complete the assessment.
(B) Information to congress.--Not
later than 30 days after the date on which the assessment
under subparagraph (A) is completed, the Defense Innovation
Board and the Defense Science Board shall jointly provide to
the congressional defense committees--
(i) a report summarizing the
assessment; and
(ii) a briefing on the findings
of the assessment.
(g) Demonstrations and Briefing.--
(1) Demonstration of
implementation.--Not later than October 20, 2021, the
Secretary of Defense shall submit to the congressional defense
committees a demonstration and briefing on the progress of the
Secretary in implementing subsections (a) through (c). The
briefing shall include an explanation of how the results of
the demonstration activities carried out under subsection (c)
will be incorporated into the policy and guidance required
under subsection (d), particularly the policy and guidance of
the members of the steering committee established under
subsection (e).
(2) Briefing on legislative
recommendations.--Not later than February 1, 2022, the
Secretary of Defense shall submit to the Committees on Armed
Services of the Senate and of the House of Representatives a
briefing that identifies any changes to existing law that may
be necessary to facilitate the implementation of subsections
(a) through (c).
(3) Demonstration of portfolio
management.--In conjunction with the budget of the President
for fiscal year 2023 (as submitted to Congress under section
1105(a) of title 21, United States Code), the Deputy Secretary
of Defense shall schedule a demonstration of the portfolio
management capability developed under subsection (b) with the
congressional defense committees.
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Digital modernization of analytical
and decision-support processes for managing and overseeing
Department of Defense acquisition programs (sec. 836)
The House bill contained a provision (sec.
220) that would direct the Secretary of Defense to develop and
implement an advanced digital data and analytics capability that
would digitally integrate all data generated in the Department
of Defense's acquisition process, such that the data necessary
to carry out research and development, test and evaluation,
program management, and other acquisition activities would be
available in a comprehensive, authoritative, and
widely-accessible format. The provision would also direct the
Secretary of Defense to carry out certain demonstration
activities, require the Defense Innovation Board and Defense
Digital Service to conduct independent assessments in support of
this effort, and establish congressional reporting requirements.
The House bill contained another
provision (sec. 819) that would require the Under Secretary of
Defense for Acquisition and Sustainment, in coordination with
the Chairman
of the Joint Chiefs of Staff, and the Director of Cost
Assessment and Program Evaluation, to develop a plan to
identify, develop, and acquire databases, analytical and
financial tools, and workforce skills to improve the Department
of Defense-wide assessment, management, and optimization of
investments in weapon systems of the Department, including
through consolidation of duplicative or similar weapon system
programs.
The Senate amendment contained no
similar provisions.
The Senate recedes with an amendment
that would combine the two provisions to direct digital
modernization of analytical and decision-support processes for
managing and overseeing Department of Defense acquisition
programs.
The conferees note that several U.S.
Government Accountability Office reports have cited the need for
improved data management processes surrounding the Department's
overall management framework. The conferees note that while most
relevant data is Government-owned and authorized for
Department-wide use, there is no enterprise mechanism
facilitating the discovery, access, correlation or integration,
and use of acquisition-related data across organizational
boundaries; instead, each functional organization has
established and locally optimized its own data and analytic
processes for its own needs, and in many cases even these local
practices are highly manual and inefficient. The conferees
further note open Comptroller General recommendations pertaining
to the roles, responsibilities, and activities to execute
portfolio management of acquisition programs that the Department
has partially disagreed with and thus not implemented. Further,
the conferees note that in recent years the Congress has
directed and the Department has implemented significant
acquisition reforms, and along with those reforms, in the
National Defense Authorization Act for fiscal year 2020 (Public
Law 116-92) in sections 830 and 836 the Congress directed the
Department to update its decision-support processes to
facilitate holistic, comprehensive management and oversight of
acquisition programs under the new adaptive acquisition
framework. Although the conferees are encouraged by the
Department's expansion of its Advanced Analytics (ADVANA) system
to provide analytics and decision support for certain of the
Department's processes, the conferees are concerned that,
notwithstanding ADVANA, the Department is squandering
opportunities to reshape management and oversight, and expect
the Department to take seriously the direction under this
section.
House Committee Report
116-442 Accompanying H. R. 6395
Section 220--Digital Data
Management and Analytics Capability
This section would direct the Secretary of Defense to develop
and implement an advanced digital data and analytics capability
to digitally integrate all elements of the Department of
Defense's acquisition process; digitally record and track all
relevant data generated during the research, development,
testing, and evaluation of systems; and maximize the use of such
data to inform the further development and improvement of both
acquisition systems and the acquisition process for those
systems.
The committee is aware that several U.S.
Government Accountability Office reports have cited the need for
improved data management processes surrounding the Department's
overall management framework. While most relevant data is
government owned and authorized for Department-wide use, there
is no enterprise mechanism facilitating the discovery, access,
correlation or integration, and use of acquisition-related data
across organizational boundaries. Each functional organization
has established and locally optimized its own data and analytic
processes for its own needs, and in many cases even these local
practices are highly manual and inefficient.
To this end, this section would direct
the Secretary of Defense to conduct a significant review of data
content and requirements to support management functions;
implement demonstration activities to develop lessons learned
and inform the way forward; conduct a comparative analysis that
assesses the risks and benefits of the digital management and
analytics capability relative to the Department's traditional
data collection, reporting, exposing, and analysis approaches;
and update the Department's policy and guidance based on the
results of the demonstration activities.
This section would also require the
Defense Innovation Board, in consultation with the Defense
Digital Service, to conduct an independent assessment and submit
a report to both the Secretary and the congressional defense
committees no later than 180 days from enactment of this Act on
recommended approaches for implementation of the capability.
This section would then require the
Secretary to submit an implementation report to the
congressional defense committees not later than 90 days after
the Defense Innovation Board's assessment. Finally, it would
require the Defense Innovation Board and the Defense Science
Board to submit an independent joint assessment on the
Department's progress by March 15, 2022.
Section 219--Extension of Pilot
Program for the Enhancement of the Research, Development, Test,
and Evaluation Centers of the Department of Defense
This section would extend the termination date by 5 years for
the pilot program for the enhancement of the research,
development, test, and evaluation centers of the Department of
Defense established in section 233 of the National Defense
Authorization Act for Fiscal Year 2017 (Public Law 114-328). The
new pilot termination date would be September 30, 2027. This
section would require the Secretary of Defense to submit a
report to the congressional defense committees not later than 1
year after the date of the enactment of this Act on the status
of the pilot program, to include: (1) which military
departments are not participating in the program; (2) any issues
that are preventing their participation; and (3) any offices or
elements of the Department that may be responsible for their
delay in implementation. This section would also correct the
title of the Assistant Secretary of the Army for Acquisition,
Logistics, and Technology.
The committee believes in the importance
of demonstrating methods for the more effective development of
technology and management of functions at the Department's
science and technology reinvention laboratories, test and
evaluation centers part of the Major Range and Test Facility
Base, and at the Defense Advanced Research Projects Agency. The
committee urges each of the military services and the Office of
the Secretary of Defense to make the most of the extended
timeframe for this important pilot program. |
