AAC/ASC/ESC MILESTONE DECISION
PROCESS GUIDE
War-winning capabilities…on time, on cost
Published and maintained by the AAC/ASC/ESC Product Centers’ Acquisition
Centers of Excellence (ACE).
1 July 2010
PREFACE
This Milestone Decision Process Guide describes the standard process for obtaining DoD
5000 series milestone decisions. This Guide is designed for all ACAT Programs where
the Milestone Decision Authority (MDA) is an Air Force Program Executive Officer
(AFPEO). Programs with an AFPEO as the MDA will normally be those ACAT II
programs where MDA authority is delegated from SAF/AQ and all ACAT III programs.
This Guide also provides process guidance for ACAT I and non-delegated ACAT II
programs, when the MDA is above the AFPEO. That includes the SAF/AQ and the
USD(AT&L).
A few key elements identified in this guide are roles and responsibilities of relevant
organizations, documentation requirements, overall milestone decision process flow,
tools and templates, as well as ways in which to streamline and improve your program's
chance for success. This Process Guide has been designed to provide the acquisition
workforce and our industry partners with a more effective, user-friendly capability to
access best business practice, supporting policy, and lessons learned. The Acquisition
Center of Excellence (ACE) office at each AFMC product center will be involved with
you throughout the implementation of this most important business process.
DISCLAIMER: This Guide was designed to cover the Milestone Decision points for
most ACAT programs. However, it does not cover Services programs or Space
programs. Those will be covered in other documentation and guidebooks.
CONFIGURATION MANAGEMENT: The ASC ACE will maintain configuration
management of this document. The document will be reviewed to determine revision
requirements when there are updates to the statutory or regulatory requirements
documents that address the milestone decision process. Comments on this document may
be provided to your local product center ACE or you may provide your input directly to
the ASC/AQH point of contact at Wright-Patterson AFB, Mr. Jim Marks at DSN 7856266. You may send any recommended changes or other comments to this guide to
ASC/AQ Workflow email account.
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TABLE OF CONTENTS
BACKGROUND . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
DESCRIPTION OF MILESTONES AND MID-PHASE ASSESSMENTS . . . . . . . . . . .5
CONCEPT OF OPERATIONS FOR ACAT I AND NON-DELEGATED ACAT II
PROGRAMS . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
CONCEPT OF OPERATIONS FOR DELEGATED ACAT II AND ACAT III
PROGRAMS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16
PROCESS FLOW . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
TOOLS AND TEMPLATES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
KEYS TO SUCCESS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
PLACES TO FIND MORE INFORMATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26
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BACKGROUND
Over the past several years, Air Force Materiel Command (AFMC) has operated without
a standard, Command-wide Milestone Decision process for all Acquisition Category
(ACAT) programs. Programs preparing for a Milestone review rely on the best practices
and procedures necessary to guide them through the process that have been developed by
the local AFMC Product Center ACE.
The following process guide updates the Milestone review best practices and procedures,
developed by the AFPEO ACE offices, to reflect the changes to DoDI 5000.02 (8 Dec
08), AFI 63-101 (19 Feb 10), AF Pamphlet 63-128 (5 Oct 09), and the Weapon System
Acquisition Reform Act, Public Law 111-23(22 May 09).
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DESCRIPTION OF MILESTONES, PHASES, AND MIDPHASE ASSESSMENTS
General. The life cycle process consists of periods of program activity called phases,
separated by decision points called milestones, such as Milestone A. Some phases are
divided into two efforts separated by program reviews, called mid-phase assessments,
such as the Post-CDR Assessment during the EMD Phase. These milestones and other
decision points provide both the Program Manager (PM) and Milestone Decision
Authorities (MDAs) the framework with which to review acquisition programs, monitor
and administer progress, identify problems, and make corrections. The MDA will
approve entrance into the appropriate phase or effort of the acquisition process by signing
an Acquisition Decision Memorandum (ADM) upon completion of a successful decision
review. Other people who are major players in the milestone decision process are the
Center Senior Functionals (CSFs). They are the senior leaders of the functional
directorates that support the center commander, e.g., AAC/EN, ASC/PK, ESC/AQ, etc.
The Organizational Senior Functionals (OSFs) are also significant players in the process.
The OSFs are the people in senior functional positions at the individual PEO directorate
level.
There is no single design; each program structure must be based on that program’s unique
set of requirements and available technology. The process of adjusting the life cycle to
fit a particular set of programmatic circumstances is often referred to as “tailoring”. The
number of phases, key activities, and decision points are tailored by the PM (with MDA
approval), based on an objective assessment of the program’s technical maturity and
risks. For more details on tailoring, see DoDD 5000.01, paragraph 4.3.1. Milestone
decisions are made by the MDA depending on the acquisition category (ACAT) of the
program. ACAT levels are determined by program dollar value or, in some cases, special
high level interest in the program.
Materiel Development Decision (MDD) Review. The MDD review, mandatory for all
new programs, is the formal entry point into the acquisition process. The results of the
MDD review with the MDA are documented in an ADM that defines the approval of the
Analysis of Alternatives (AoA) study guidance and identifies the initial milestone entry
point. At the MDD, the MDA: Approves AoA Study Guidance or Reviews the Results of
Previously conducted AoA Activity; Identifies Promising Technologies (Consider Cost,
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Schedule, Performance, and Risk Factors with each Technology Considered); Determines
the acquisition phase of entry, with associated entry and exit criteria; identifies initial
review milestone; designates lead DoD Component, if applicable; and finally approves
the ADM. Depending on the technical maturity of the proposed solution, the PM can
recommend to the MDA entry into any of the program phases. At the MDD for MDAP
programs, the MDA directs the initiation of the AoA (Study Guidance is then approved
by the OSD Director of Cost Assessment and Program Evaluation (D, CAPE)) or reviews
the results of previously conducted AoA Activity.
Typical MDD Documentation Requirements (As required):
- AoA Study Guidance
- Any previously conducted AoAs
- Concept Characterization Technical Descriptions (CCTD)
- Initial Capabilities Document (ICD)
- Market Research
Materiel Solution Analysis Phase. The Materiel Solution Analysis Phase begins with
the Materiel Development Decision Review. An approved warfighter user developed
ICD and approved AoA guidance are required to enter the Materiel Solution Analysis
Phase. The AoA assesses potential materiel solutions to satisfy the capability need
documented in the approved ICD. It focuses on identification and analysis of alternatives,
measures of effectiveness, cost, schedule, concepts of operations, and overall risk,
including the sensitivity of each alternative to possible changes in key assumptions or
variables. The AoA also assesses Critical Technology Elements (CTEs) associated with
each proposed materiel solution, including technology maturity, integration risk,
manufacturing feasibility, and, where necessary, technology maturation and
demonstration needs. The Materiel Solution Analysis Phase ends when the AoA has
been completed, materiel solution options for the capability need identified in the
approved ICD have been recommended by the lead DoD Component conducting the
AoA, and the phase-specific entrance criteria for the initial review milestone have been
satisfied.
Milestone A. Entrance into the Technology Development phase at Milestone A depends
on the completion of the AoA, a proposed materiel solution and full funding for the
planned phase activity. At Milestone A, the MDA shall review the proposed materiel
solution and the draft Technology Development Strategy (TDS). In addition the MDA
approves the exit criteria for next phase; and signs the Milestone A Certification (10 USC
2366a) if the program is a Major Defense Acquisition Program (MDAP); and issues the
Acquisition Decision Memorandum (ADM). The Technology Development Phase
begins when the MDA has approved a materiel solution, the TDS, and has documented
the decision in an ADM.
Typical Milestone A Documentation Requirements (As required):
- Acquisition Decision Memorandum (ADM)
- Analysis of Alternatives (AoA)
- Acquisition Information Assurance Strategy
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- Clinger-Cohen Act (CCA) Compliance
- CIO Confirmation of CCA Compliance (for MDAPs & MAIS, DoD CIO
confirms)
- Consideration of Technology Issues
- Component Cost Estimate (CCE)
- Economic Analysis (for MAIS Programs)
- Exit Criteria
- Initial Capabilities Document (ICD)
- Item Unique Identification (IUID) Implementation Plan
- Life Cycle Signature Support Plan
- Market Research
- MDA Program Certification (For MDAP Programs)
- Program Protection Plan (PPP)
- Systems Engineering Plan (SEP)
- Technology Development Strategy (TDS)
- Test & Evaluation Strategy (TES)
- Cooperative Opportunities
- Data Management Strategy
Technology Development Phase. The purpose of this phase is to reduce technology risk,
determine and mature the appropriate set of technologies to be integrated into a full
system, and to demonstrate Critical Technology Elements (CTEs) competitive prototypes
at the system or subsystem level. Competitive prototyping is a statutory requirement for
MDAP programs. Technology Development is a continuous process reflecting close
collaboration between the Science and Technology community, the user and the system
developer. It is an iterative process designed to assess the viability of technologies while
simultaneously refining user requirements. Projects exit Technology Development when
an affordable program or increment of militarily useful capability has been identified; the
technology (Technology Readiness Level (TRL) 6) and manufacturing (Manufacturing
Readiness Level (MRL) 6) processes for that program or increment have been assessed
and demonstrated in a relevant environment; manufacturing risks have been identified; a
system or increment can be developed for production within a short timeframe (normally
less than 5 years for weapon systems); or, when the MDA decides to terminate the effort.
During the Technology Development, the user shall prepare the Capability Development
Document (CDD) to support initiation of the acquisition program or evolutionary
increment, refine the integrated architecture, and clarify how the program will lead to
joint warfighting capability. The CDD builds on the ICD and provides the detailed
operational performance parameters necessary to complete design of the proposed
system.
Post-Preliminary Design Review (PDR) Report and Assessment. When consistent
with the Technology Development Phase objective, associated prototyping activity, and
the MDA approved Technology Development Strategy (TDS), the PM should plan a
PDR before Milestone B, as appropriate. PDR planning shall be reflected in the TDS and
shall be conducted for the candidate design(s) to establish the allocated baseline
(hardware, software, human/support systems) and underlying architectures and to define
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a high-confidence design. All system elements (hardware and software) shall be at a
level of maturity commensurate with cost estimate and identify remaining design,
integration and manufacturing risks. The Post-PDR Report and Assessment are
accomplished as part of the preparation for Milestone B (MS B), when PDR occurs
during the Technology Development Phase. The Post-PDR report shall be provided to
the MDA at Milestone B and include recommended requirement trades based upon an
assessment of cost, schedule and performance risk. The results of Post-PDR Assessment
by the MDA are documented in an ADM that provides direction on the required future
activities of the program.
Milestone B. Engineering and Manufacturing Development (EMD) begins at Milestone
B. Milestone B is also considered Program Initiation for most programs. At this
Milestone the MDA shall approve: Entry into EMD phase; the Acquisition Strategy;
Acquisition Program Baseline; Low Rate Initial Production (LRIP) quantities, if an LRIP
is planned; Exit criteria for next phase; the Type of Contract; the Milestone B
Certification (10 USC 2366b), if the program is a Major Defense Acquisition Program
(MDAP); and finally the ADM. Entrance into the EMD phase depends on technology
and manufacturing maturity (including software), approved requirements documented in
the Capability Development Document (CDD), and full funding.
Milestone B Typical Documentation Requirements (As required):
- Acquisition Decision Memorandum (ADM)
- Analysis of Alternatives (AoA) (update)
- Acquisition Strategy
- Affordability Assessment
- Acquisition Program Baseline
- Acquisition Information Assurance Strategy
- Alternate Live Fire T&E Plan
- Benefit Analysis & Determination
- Capability Development Document (CDD)
- Clinger-Cohen Act (CCA) Compliance
- CIO Confirmation of CCA Compliance (for MDAPs & MAIS, DoD CIO
confirms)
- Consideration of Technology Issues (for ACAT I & II Programs)
- Competition Analysis
- Component Cost Estimate (CCE)
- Cooperative Opportunities
- Core Logistics Analysis/Source of Repair Analysis
- Cost Analysis Requirements Description (CARD) (MDAP & MAIS)
- Cost Benefit Analysis (CBA) for Sustainment
- Corrosion Prevention Control Plan
- Data Management Strategy (in acquisition strategy)
- Economic Analysis (for MAIS Programs)
- Exit Criteria
- Initial Capabilities Document (ICD)
- Independent Cost Estimate (ICE) (ACAT I)
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- Independent Technology Readiness Assessment (TRA) (ACAT ID)
- Information Support Plan (ISP)
- Industrial Base Capabilities (for MDAP Programs)
- Item Unique Identification Implementation Plan (SEP annex)
- Live Fire T&E Waiver
- Life Cycle Sustainment Plan (LCSP) (May be covered in the LCMP)
- Life Cycle Signature Support Plan
- LRIP Quantities (for ACAT I & II Programs)
- Manpower Estimate (for MDAP Programs)
- Market Research
- MDA Program Milestone B Certification (for MDAP Programs)
- MDA Assessment of compliance with Chemical, Biological, Radiological, and
Nuclear Survivability Requirements
- Net-Centric Data Strategy (in ISP)
- Operational Test Agency OT&E Report
- Preliminary Design Review Report
- PM’s Developmental Test Report
- Program Protection Plan (PPP)
- Programmatic Environmental Safety & Occupational Health Evaluation
(PESHE)
- Replaced System Sustainment Plan (for MDAP Programs)
- Selected Acquisition Report (SAR) (for MDAP Programs)
- Spectrum Supportability Determination
- SEP
- System Threat Assessment Report (STAR) (for ACAT I Programs)
- System Threat Assessment (for ACAT II Programs)
- Technology Readiness Assessment (TRA)
- TEMP
Engineering and Manufacturing Development (EMD) Phase. The purpose of the
EMD Phase is to develop a system or an increment of capability; complete full system
integration (technology risk reduction occurs during Technology Development); develop
an affordable and executable manufacturing process ensure operational supportability
with particular attention to minimizing the logistics footprint; implement human systems
integration (HSI) design for producibility; ensure affordability; protect Critical Program
Information (CPI) by implementing appropriate techniques such as anti-tamper and
demonstrate system integration, interoperability, safety, and utility. The CDD,
Acquisition Strategy, System Engineering Plan, and Test and Evaluation Master Plan
(TEMP) guide the effort. EMD has two major work efforts: Integrated System Design,
and System Capability and Manufacturing Process Demonstration. Additionally, the
MDA conducts a Post-PDR Assessment when consistent with the Acquisition Strategy,
and Post-Critical Design Review (CDR) Assessment to end Integrated System Design.
Integrated System Design is intended to define system and system-of-systems
functionality and interfaces, complete hardware and software detailed design, and reduce
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system-level risk. The effort also includes the establishment of the product baseline for
all configuration items.
Following successful completion of the Integrated System Design effort, the program
enters the System Capability and Manufacturing Process Demonstration phase. This
effort is intended to demonstrate the ability of the system to operate in a useful way
consistent with the approved Key Program Parameters (KPPs) and that system production
can be supported by demonstrated manufacturing processes. This effort shall end when
the system meets approved CDD requirements, has achieved required TRL and MRL
levels, and is demonstrated in its intended environment using the selected productionrepresentative article; manufacturing processes have been effectively demonstrated in a
pilot line environment; industrial capabilities are reasonably available; and the system
meets or exceeds exit criteria and Milestone C entrance requirements. Successful
development test and evaluation to assess technical progress against critical technical
parameters, early operational assessments, and where proven capabilities exist, the use of
modeling and simulation to demonstrate system/system-of-systems integration are critical
during this effort. The completion of this EMD phase and is dependent on a decision by
the MDA to commit to the program at Milestone C or a decision to end the program.
Post-Preliminary Design Review (PDR) Report and Assessment. If a PDR was not
conducted prior to Milestone B, the PM shall plan for a PDR as soon as feasible after
program initiation. Following PDR, the PM shall plan and the MDA shall conduct a
formal Post-PDR Assessment. The Post-PDR report shall be provided to the MDA prior
to the assessment and reflect any requirement trades based upon the PM’s assessment of
cost, schedule and performance risk. The MDA will consider the results of the PDR and
PM’s assessment and determine whether remedial action is necessary to achieve program
objectives. The Post-PDR Assessment will be conducted during the Milestone B review,
and prior to the Title 10 USC Section 2366b certification. If PDR is conducted after
Milestone B, the MDA will conduct a Post-PDR Assessment at a time reflected in the
approved Acquisition Strategy.
Post Critical Design Review (CDR) Report and Assessment. A CDR will be held late
in the Integrated Systems Design effort to provide an opportunity to assess design
maturity as evidenced by measures such as: successful completion of subsystem CDR;
the percentage of hardware and software product build-to specifications and drawings
completed and under configuration management; planned corrective actions to
hardware/software deficiencies; adequate developmental testing; an assessment of
environmental, safety and occupational health characteristics; the maturity of critical
manufacturing processes; and an estimate of system reliability based on demonstrated
reliability rates. The Post-CDR Assessment is the formal entry into the System
Capability and Manufacturing Process Demonstration work effort of the EMD Phase of
the program.
The MDA shall review the Post-CDR report and the PM’s
resolution/mitigation plans and determine whether additional action is necessary to
satisfy the EMD Phase exit criteria and to achieve the program outcomes specified in the
APB. Successful completion of the Post-CDR Assessment ends Integrated System
Design with the establishment of an initial product baseline and continues the EMD
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Phase into System Capability and Manufacturing Process Demonstration. The results of
the Post-CDR Assessment by the Milestone Decision Authority are documented in an
Acquisition Decision Memorandum (ADM) that provides direction on the future
activities required of the program.
Milestone C. Programs enter Production and Deployment Phase at Milestone C. At
Milestone C, the MDA approves: the Updated Acquisition Strategy and Acquisition
Program Baseline; Entry into LRIP for systems that require a LRIP, into production or
procurement for systems that do not require LRIP, or into limited deployment for MAIS
programs or software intensive systems with no production components; Exit criteria for
LRIP if appropriate; and the ADM. The requirements document applicable to Milestone
C is the Capability Production Document (CPD).
Typical Milestone C Documentation Requirements (As required):
- Acquisition Decision Memorandum (ADM)
- Analysis of Alternatives (AoA) (update)
- Acquisition Strategy
- Affordability Assessment
- Acquisition Program Baseline
- Acquisition Information Assurance Strategy
- Benefit Analysis & Determination
- Capability Production Document (CPD)
- Title 40/Clinger-Cohen Act (CCA) Compliance
- CIO Confirmation of CCA Compliance (for MDAPs & MAIS, DoD CIO
confirms)
- Consideration of Technology Issues (ACAT I & II)
- Competition Analysis
- Component Cost Estimate (CCE)
- Cooperative Opportunities
- Core Logistics Analysis/Source of Repair Analysis
- Cost Analysis Requirements Description (CARD) (MDAP & MAIS)
- Corrosion Prevention Control Plan
- Data Management Strategy (in acquisition strategy)
- Exit Criteria
- Initial Capabilities Document (ICD) (if program initiation)
- Independent Cost Estimate (ACAT I)
- Independent Technology Readiness Assessment (TRA) (ACAT ID)
- Information Support Plan (ISP)
- Industrial Base Capabilities (MDAP)
- Item Unique Identification Plan (SEP annex)
-Life Cycle Management Plan (LCMP)
- Life Cycle Sustainment Plan (LCSP)
- Life Cycle Signature Support Plan
- Manpower Estimate (MDAP)
- MDA Program Certification (if program initiation)
- Military Equipment Validation (in acquisition strategy)
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- Net-Centric Data Strategy (in ISP)
- Operational Test Agency OT&E Report
- PM’s Developmental Test Report
- Program Protection Plan (PPP)
- Programmatic Environmental Safety & Occupational Health Evaluation
(PESHE)
- Selected Acquisition Report (SAR) MDAP (if rebaselined)
- Spectrum Supportability Determination
- Systems Engineering Plan (SEP)
- System Threat Assessment Report (STAR) (ACAT I)
- System Threat Assessment (ACAT II)
- Technology Readiness Assessment (TRA)
- Test & Evaluation Master Plan (TEMP)
Production and Deployment Phase. The purpose of Production and Deployment is to
achieve an operational capability that satisfies mission needs. Milestone C authorizes
entry into Low Rate Initial Production (LRIP) or into Full Rate Production (for nonmajor systems that do not require an LRIP). The purpose of LRIP is to complete
manufacturing development, to produce the minimum quantity necessary to provide
production or production-representative articles for Initial Operational Test and
Evaluation (IOT&E), and to establish an initial production base for the system. The
system is produced and delivered to the field for operational use. During this phase, the
PM must ensure that systems are produced at an economical rate and deployed in
accordance with the user’s requirement to meet the Initial Operational Capability (IOC)
requirement specified in the CPD. Follow-on operational test and evaluation may also be
conducted, if appropriate, to confirm operational effectiveness and suitability or verify
the correction of deficiencies. The operations and support phase begins as soon as the
first systems are fielded/deployed; therefore, the production and deployment phase
overlaps the next phase, operations and support.
Full Rate Production (FRP) Decision Review (FRPDR). The FRP Decision Review is
the formal entry point into the Full Rate Production Phase. At the FRP Decision Point,
the MDA shall approve: entry into the Full Rate production work effort; an Updated
Acquisition Strategy; an Updated Acquisition Program Baseline; Exit criteria, and if
appropriate; Provisions for evaluation for post-deployment performance. The results of
FRP Decision by the Milestone Decision Authority are documented in an Acquisition
Decision Memorandum (ADM) that provides direction on the future activities required of
the program to include long-term sustainment strategy. Projects may not proceed beyond
LRIP without the approval of the MDA. The decision to continue into full-rate
production shall depend on completion of IOT&E, demonstrated control of
manufacturing process, and acceptable reliability. During the Production/Deployment
Phase, operating units (where the system is deployed), shall attain IOC.
Typical FRPDR Documentation Requirements (As required):
- Acquisition Decision Memorandum (ADM)
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- Analysis of Alternatives (AoA) (for AIS Programs only)
- Acquisition Strategy
- Acquisition Program Baseline
- Acquisition Information Assurance Strategy
- Beyond LRIP Report (DOT&E T&E Oversight Programs)
- Clinger-Cohen Act (CCA) Compliance
- Confirmation of CCA Compliance (for MDAPs & MAIS, DoD CIO confirms)
- Component Cost Estimate (CCE)
- Cost Analysis Requirements Description (CARD) (MDAP & MAIS)
- Data Management Strategy (part of Acq Strategy)
- Economic Analysis
- Exit Criteria
- IT and NSS Joint Interoperability Test Certification (all IT including NSS)
- IOT&E Completed ACAT I and II (conventional weapons systems for use in
combat)
- Independent Cost Estimate (ICE) (ACAT I) (if MDA requests)
- Life Cycle Sustainment Plan (LCSP)
- Live Fire T&E Report (OSD LFT&E Programs)
- Manpower Estimate (MDAP)
- Military Equipment Validation (part of Acq Strategy)
- Operational Test Agency OT&E Report
- Post Implementation Review
- Programmatic Environmental Safety & Occupational Health Evaluation
(PESHE)
- Test & Evaluation Master Plan (TEMP)
Operations and Support Phase. During this phase, Full Operational Capability (FOC) is
achieved, each element of logistics support is evaluated (e.g., supply, maintenance,
training, technical data, support equipment), and operational readiness is assessed.
Although logistics and readiness concerns dominate this phase, logistics involvement
throughout the acquisition lifecycle (especially during the early phases) is critical in order
to influence affordable systems designs and optimal program execution. The operations
and support phase also includes life cycle sustainment and disposal. Disposal of the
system occurs at the end of its useful life. The PM should have planned for disposal early
in the system’s life cycle and should ensure that the system disposal minimizes DoD’s
liability resulting from environmental, safety, security, and health issues. Environmental
considerations are particularly critical during disposal, as there may be international
treaty or other legal considerations that require intensive management of the system’s
demilitarization and disposal.
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CONCEPT OF OPERATIONS
FOR ACAT I AND NON-DELEGATED ACAT II
PROGRAMS
Purpose: The Milestone Decision Process is a standardized process for all ACAT I and
non-delegated ACAT II programs providing guidance and support to these programs for
obtaining milestone decisions. This process maximizes use of already existing Air Force
and AFMC practices and procedures, resulting in this standardized Milestone Decision
Process. Additionally, this process is aligned with the SAF/AQ Air Force Review Board
(AFRB) process for ACAT ID, ACAT IC, and non-delegated ACAT II programs.
Roles and Responsibilities:
SAF/AQ serves as the Milestone Decision Process owner for ACAT I and non
delegated ACAT II programs.
Product Center ACEs serve as the facilitators for the overall process of program
Milestone Decision preparation at the center level.
SAF/PM&AE serves as focal point for ACAT I and Non-delegated ACAT II
programs.
AFPEO Program Execution Group serves as focal point for the Milestone
Decision briefing in the AFPEO organization.
Program Manager / Program Team is responsible for required documentation
applicable to the Milestone Decision Process. The Program Manager is ultimately
responsible for ensuring appropriate functional expertise (EN, FM, PM, PK, Log,
IN, etc.) is engaged as needed throughout the milestone decision process. The
PM will also ensure that he/she coordinates all plans for the Milestone Decision
with the Center Senior Functionals (CSFs)/Organizational Senior Functionals
(OSFs) their AFPEO, and SAF/AQ. PM (and the entire PM team) will ensure all
plans for the Milestone Decision are properly coordinated with the assigned
AFPEO staff and AFPEO.
The cognizant AFPEO is responsible to ensure that the PM is ready for a
Milestone Decision briefing to the appropriate MDA. That typically means that
an AFPEO, the Organization Senior Functionals (OSFs), and the appropriate
Center Senior Functionals (CSFs) will review all the documentation, ensure
availability of required resources, and conduct pre-briefings, as appropriate.
Tools provided by the product center Acquisition Centers of Excellence:
Provided to aid in the milestone decision process are the following tools:
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Standardized Milestone Templates
Milestone Document Matrices
Air Force Review Board (AFRB) Template
These tools are available for program teams to utilize in tracking, managing, and briefing
their program activities required for a milestone decision. These templates are designed
to be relatively comprehensive and are intended to be “downwardly tailored” with the
assistance of SAF/AQ SAF/PM&AE, and product center ACE personnel with appropriate
Center Senior Functional (CSF), and Organizational Senior Functional (OSF) expertise.
Standardized Milestone Templates provide a standard decision format to use for
decision recommendations to the MDA. Each template is specifically designed to meet
the unique requirements of the decision. Use of the template is encouraged for all ACAT
I and non-delegated ACAT II programs, while recognizing that “tailoring” is inherent in
the templates. In addition, these programs will use the AFRB template and ASP template
available for download at the SAF/PM&AE site (https://www.my.af.mil/gcssaf/USAF/ep/globalTab.do?channelPageId=s6925EC13430A0FB5E044080020E329A9),
as appropriate.
Milestone Document Matrices identify all DoDI 5000.02 statutory and regulatory
document requirements for each milestone decision as well as Full Rate Production
Decision. The documents in these matrices are available in DoDI 5000.02, Enclosure 4,
in checklist fashion with embedded links to additional information about each document.
The matrices have the flexibility to be tailored to individual program requirements for
tracking and reporting.
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CONCEPT OF OPERATIONS
FOR DELEGATED ACAT II AND ACAT III PROGRAMS
Purpose: As with ACAT I and non delegated ACAT II programs, the milestone decision
process for delegated ACAT II and ACAT III programs is a standardized process that
provides guidance and support to these programs for obtaining milestone decisions. This
process maximizes use of already existing Air Force and AFMC product center practices
and procedures, resulting in this standardized AFMC Milestone Decision Process.
Additionally, this process is aligned with the SAF/AQ Air Force Review Board (AFRB)
process for ACAT ID, ACAT IC, and retained ACAT II programs.
Roles and Responsibilities:
Product Center ACE serves as the implementers/facilitators for the overall
process.
Program Execution Group (PEG) serves as focal point to the MDA.
Program Manager/Program Team is responsible for required documentation
applicable to the Milestone Decision Process. The Program Manager is ultimately
responsible for ensuring appropriate functional expertise (EN, FM, PM, PK, Log,
etc…) is engaged as needed throughout the milestone decision process.
Process Products provided by the ACE:
Provided to aid in the milestone decision process are the following tools:
Standardized Briefing Templates
Document Matrices
These tools are available from the ACE organizations at each of the product
centers for program teams to utilize in tracking, managing, and briefing their
program activities required for a milestone decision. These templates are
designed to be relatively comprehensive and are intended to be “downwardly
tailorable” with the assistance of ACE and PEG acquisition support personnel and
appropriate functional expertise.
Standardized Milestone Templates provide a standard Milestone format to use for
decision meetings to the MDA. Each Milestone template is specifically designed
to meet the unique requirements of the decision. Use of the template is strongly
recommended for all AFPEO delegated ACAT II and ACAT III programs, while
recognizing that “tailoring” is inherent in the templates.
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Document Matrices identify all DoDI 5000.02 and AF 63-101 statutory and
regulatory document requirements for each milestone decision. The documents in
these matrices are listed in checklist fashion with embedded links to additional
information about each document. The matrices have the flexibility to be tailored
to individual program requirements for tracking and reporting.
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PROCESS FLOW
Overall Process:
The Milestone (MS) approval process for all ACAT programs is used to obtain MDA
approval of program milestones and related major program interim decision points.
These include MS A, MS B, MS C, MDD, Post PDR Assessment, Post CDR Assessment,
and Full Rate Production (FRP) Decision Review. Program teams may tailor the process,
with approval of their MDA, to fit each acquisition program consistent with technical
risk, design maturity and sound business practices.
Use of Milestone Decision Templates:
In order to assist acquisition teams with the decision preparation, templates have been
prepared based on the decision being sought. As the acquisition team prepares the
briefing, the ACE and PEG are available to review and comment on the draft preparation.
Depending on individual acquisition AFPEO CONOPS, the program team should review
the Milestone Decision Review preparation—with the AFPEO OSF and/or the product
center CSF. That will normally occur after the material has been reviewed by the ACE
and/or the PEG. This usually is accomplished by a “dry run” of the information.
The Milestone Decision templates guide the acquisition team in the preparation of the
Milestone decision briefing to the MDA. Included in the templates are extensive
background of the program, completion of entrance criteria for the acquisition phase
being considered, and completion of program documentation requirements as prescribed
by DoDI 5000.02. Many of the topics covered in the background section relate to the
program’s acquisition strategy.
The PEOs may use the CSF/OSF members as advisors during milestone reviews. That
team is an ad hoc group that may be established by the PEO. Members of that senior
acquisition team are specifically appointed and selected because of their critical center
positions, but more importantly because of their backgrounds, experiences and the ideas
they can bring to an acquisition strategy. In the case of the MS process, the team may
provide consistent counsel and cross flow of knowledge from center program-toprogram, and provide advice and recommendations to the MDA. The AFPEO PEG is the
focal point and has the responsibility to notify the members of the briefing events, to
include date, time and location. The PEG also schedules participation at the briefing to
the MDA.
Additionally, it is a good practice for the program team to work out functional oriented
issues directly with both the Organizational Senior Functional staff/lead and the
functional representative from the Center Senior Functional on the team early in the
decision brief preparation process. This allows OSF and CSF functional leads to provide
guidance, inputs, and support/buy-in/advocacy well ahead of the MS review.
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It is the responsibility of the program team to get on the MDA’s calendar. This is worked
through the action officers on the staff of the various PEOs at the product centers. The
team lead notifies the team members of the MS briefing schedule. The acquisition team
lead, normally a PM, presents the briefing that includes justification for the decision
sought. Team members and other advisors selected by the MDA may ask questions
and/or make advisory recommendations to the team and MDA. However, it is the
MDA’s decision whether to approve the MS/interim decision point review. The team
should also have the Acquisition Decision Memorandum (ADM) available for the MDA
signature. If the program is a delegated ACAT II, a copy of the ADM is forwarded to Air
Force Acquisition Executive, SAF/AQ.
Any action items assigned during the briefing session are documented by the acquisition
team. A copy of the action items with projected completion dates is provided to the PEG
action officer. If this is an ACAT I or II the SAF staff will have minutes signed by
SAF/AQ.
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TOOLS AND TEMPLATES
Several tools and templates have been developed to help guide you through the milestone
process for all ACAT programs. These tools and templates should be tailored to fit the
specific acquisition you are planning to execute. The following tools and templates are
currently available from the product center ACE:
Materiel Development Decision (MDD) Template: This template provides the
framework for briefing and obtaining MDA approval for establishment of a formal entry
point into the acquisition process. The outcome of the MDD briefing is the determination
of the acquisition phase of entry, with associated entrance criteria. Helpful hint: Use
updated AFPEO charts for the background areas where appropriate.
Milestone A Template: This template provides the framework for obtaining MDA
approval to enter the Technology Development (TD) phase for all ACAT programs. It is
important for the MDA to understand what your program is all about and why you are
ready to enter the TD phase. Helpful hint: Use updated ASP charts for the background
areas where appropriate.
Milestone A documentation requirements: This matrix identifies the statutory,
regulatory, and current policy items that should be addressed for all ACAT programs
entering the Technology Development phase. You can and should tailor these
documentation requirements to fit your specific program. However, it is important to
inform the MDA on the status of all applicable documents as well as defining why
documents were tailored or were not applicable. This forms the basis of the MDA’s
decision for approval of your Milestone A. Helpful hint: Save this file to your computer,
fill in the matrix and then copy it into your Milestone briefing to status your
documentation to the MDA.
Milestone B Template: This template provides the framework for obtaining MDA
approval to enter the Engineering and Manufacturing Development (EMD) phase for
ACAT programs. It is important for the MDA to understand what you have done to date
on this program; your plans for future activity; and identification of risk and your risk
management plans.
Milestone B documentation requirements: This matrix identifies the statutory,
regulatory, and current policy items that should be addressed for ACAT programs
entering the Engineering and Manufacturing Development (EMD) phase. You can and
should tailor these documentation requirements to fit your specific program. However, it
is important to inform the MDA on the status of all applicable documents as well as
defining why documents were tailored or were not applicable. This forms the basis of the
MDA’s decision for approval of your Milestone B.
Milestone C Template: This template provides the framework for obtaining MDA
approval to enter the Production and Deployment phase for ACAT programs. It is
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important for the MDA to understand what your program is all about and why you are
ready to enter the Production and Deployment phase.
Milestone C documentation requirements: This matrix identifies the statutory,
regulatory, and current policy items that should be addressed for ACAT programs
entering the Production and Deployment phase. You can and should tailor these
documentation requirements to fit your specific program. However, it is important to
inform the MDA on the status of all applicable documents as well as defining why
documents were tailored or were not applicable. This forms the basis of the MDA’s
decision for approval of your Milestone C.
Post-PDR Report Template: This template provides the framework for briefing the
MDA on the outcome of the PDR, and supporting the assessment of the program.
Post-CDR Report Template: This template provides the framework for briefing the
MDA on the outcome of the CDR and supporting the assessment of the program.
Acquisition Sustainment Tool Kit (ASTK): It is a good idea to consider adding the
checklist from the Acquisition Sustainment Tool Kit (ASTK) that addresses various
milestones and tasks. The following Checklists provide great Milestone guidance: 1.26
(M/S A), 2.59 (PDR), 2.62 (M/S B), 3.12 (CDR), 3.37 (M/S C), 4.06 (Program Transfer),
4.42 (FRP), and 5.67 (Disposal).
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KEYS TO SUCCESS
When using the Standard Milestone Decision Process, there are some practices and tips
that help your milestone decision to be a successful event. These keys to success have
been proven over time to work and to help ensure success to those program teams that are
on the right track to begin with. The topics covered in this section are:
A. Advance planning. The importance of advance planning cannot be stressed enough.
Planning for milestone decisions, especially for certain types of programs such as those
involving the need for a frequency spectrum assignment, must commence a minimum of
one year from the milestone decision date. The need for planning is to determine which
outside agencies or other Air Force organizations are involved and/or have approval
authority over some aspect of the program. When the need for a milestone decision
becomes known, strong consideration should be given to meeting with product center
ACE personnel right away to get an idea of the scope of effort involved and the
timeframes required to complete all required tasks and documents.
B. Early involvement of the local product center ACE and CSF/OSF staff. The
product center ACE office should be involved in all milestone decisions for programs in
the PEO portfolios. For all ACAT I and non-delegated ACAT II programs, the product
center ACE will work hand-in-hand with the SAF/AQ to help these larger programs
through the milestone decision process. This means that the product center ACE should
be involved as early as possible in the process. The ACEs have representatives from all
the major functional disciplines on their staff(s). These folks can reach back to their
respective home offices to engage experts on topical issues to help get started with their
resolution. In this respect, these functional and ACE process experts will be a vital part of
your program team if you let them – in essence force multipliers for your mission.
Properly cultivated, these individuals will help break down barriers, obtain access to
decision-makers, and resolve issues in their respective functions.
C. Tailoring of the process. The Standard Milestone Decision Process has been
designed to be downward-tailorable, or have content intended for larger, more
sophisticated programs that can be tailored out without impacting the quality of the final
briefing or documentation product. This means that concepts or requirements of the
process that are not applicable to your program can and should be eliminated or scaled
back with the help of the process experts in the product center ACE(s). These experts
can advise on the pros and cons of eliminating or adding additional topics and how the
changes will affect the likelihood of success for your milestone decision.
D. Opportunities to streamline the schedule. Part of the concept of tailoring the
Standard Milestone Decision process for your individual program is to look for
opportunities to streamline your timeline. In these cases, and with the help of the process
experts, it is possible to condense the timeline in ways that actually strengthen your
approach rather than deter from the ultimate objective of a successful milestone decision.
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Streamlining is especially useful for ACAT III programs.
possibilities are:
Two such streamlining
1. Combining the milestone review with the Acquisition Strategy Panel
(ASP) for the next-phase contract. An example of this would be to add a
Milestone C briefing or a Full-Rate Production decision to the ASP briefing
for a production contract action. This enables the milestone decision to be
presented in an efficient manner since many of the details relative to that
decision are already covered in the ASP briefing. Of course, the MDA and
ASP chair normally would be identical for this approach to work.
2. Combining the milestone review with a source selection Final Evaluation
Briefing (FEB). In cases where the Source Selection Authority and the MDA
is the same person, it is feasible to use the FEB (with supplemental slides) as a
venue for a milestone decision briefing. This usually happens after the source
selection is complete but prior to award for EMD contracts.
E. Socializing your program. The term "socializing" refers to the concept of working
issues and information transfer with the functional staff where a program's milestone
decision will be made. As an example, for ACAT III and delegated ACAT II decisions
made by the assigned AFPEO, the product center ACE, CSF/OSF//OSF, staff offices
(EN, PK, FM, XR, and AQ), as well as the legal community (JA) should be involved
throughout the process to understand the program and to help with issue resolution prior
to the milestone briefing. When the CSF/OSF staff is involved and understands the
program and its issues, and they have been pre-briefed, they will generally be a
supportive member of the extended team. The product center ACE will help engage the
CSF/OSF functionals as required and ensure that their involvement remains focused on
the right issues. The product center ACE will also work with the SAF/PM&AE when the
SAF staff is involved.
F. Planning acquisition process delegations.
There are several functions that the MDA may delegate to lower levels. These functions
are ASP Chair, Source Selection Authority, Acquisition Strategy, and LCMP approval
authority. PEOs may also delegate Milestone Decision Authority to a qualified Deputy.
Time should be spent checking the potential for delegation of these functions to the
CSF/OSF. The product center ACE, including the ASP Secretariat, can help with this
thought process, since the ACE has experience with what has been/can be done.
Delegation of these functions to the appropriate level can have a significant streamlining
affect on acquisition schedules.
G. Maximize use of existing, approved, or master program documents. Many ACAT
programs are modifications to major weapons systems, such as aircraft platforms,
weapon systems, or communications systems. In such cases, there often will be an
existing LCMP, Information Support Plan, or threat assessment that has been approved at
the platform level. When these documents exist, it is possible to use the approved
document as the one applicable to your milestone decision without further revision. It is
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also possible that an annex to an existing LCMP or other document can be prepared to
supplement the master plan for smaller ACAT program efforts.
H. Put as much as possible in the LCMP. As the lead line suggests, smaller programs
may be able to include all of their required documentation in the LCMP. When this can
be done, the coordination and approval process can be much more manageable and
control of the content is easier. Again, personnel from the local ACE can help you
develop a document management plan.
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PLACES TO FIND MORE INFORMATION
AFI 63.101 – Acquisition and Sustainment Life Cycle Management:
http://www.e-publishing.af.mil/shared/media/epubs/AFI63-101.pdf
AFPAM 63-128 – Guide to Acquisition and sustainment Life Cycle Management
http://www.e-publishing.af.mil/shared/media/epubs/AFPAM63-128.pdf
Acquisition Decision Memoranda (ADM) Website
https://extranet.acq.osd.mil/dab/adm/index.html
Acquisition Document Development & Management (ADDM) Community of
Practice (CoP):
https://afkm.wpafb.af.mil/ASPs/docman/DOCMain.asp?Tab=0&FolderID=AF-AQ-0004-7&Filter=AF-AQ-00-04
Acquisition Sustainment Tool Kit
https://afkm.wpafb.af.mil/community/views/home.aspx?Filter=MC-LG-01-82
Aeronautical System Center Acquisition Encyclopedia CoP:
https://afkm.wpafb.af.mil/community/views/home.aspx?Filter=OO-DR-PM-R1
Air Armament Center (AAC) Acquisition Center of Excellence CoP:
https://www.my.af.mil/afknprod/community/views/home.aspx?Filter=OO-AQ-AA-04
Contracting FAR Site (FAR, DFARS, AFFARS, AFMCFARS, etc.):
http://farsite.hill.af.mil/VFFARA.HTM
Defense Acquisition Guidebook (includes links to DoDD 5000.01, DoDI 5000.02,
DTM WSARA):
https://dag.dau.mil/Pages/Default.aspx
Defense Acquisition Portal (Your One-Stop Source for Acquisition Information and
Tools):
https://dap.dau.mil/Pages/Default.aspx
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Defense Acquisition University (DAU) (Premier Acquisition Training and Guidance
Site):
http://www.dau.mil
DoD Financial Management Regulation (FMR) (DoD 7000.14R):
http://www.defenselink.mil/comptroller/fmr/
Electronic System Center Program Manager’s Toolbox:
https://centernet.hanscom.af.mil/acqdev/pmtb/default.htmlSAF/AQ - AF
PM&AE - Center for Program Management and Acquisition Excellence
https://www.my.af.mil/gcssaf/USAF/ep/globalTab.do?channelPageId=s6925EC1351B50FB5E044080020E329A902
0E329A9
USAF e-Publishing (AFI, AFPD, Forms, and Other Publications):
http://www.e-publishing.af.mil/
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