Description
Contingency Business Environment Concept of Operations
Contingency Business Environment CONOPS DPAP December 20, 2010
Contingency Business
Environment
Concept of Operations
Version 5.0
December 20, 2010
Contingency Business Environment CONOPS DPAP December 20, 2010
Table of Contents
Table of Contents ............................................................................................................................................................................................... 1
1 Executive Summary .................................................................................................................................................................................... 5
2 Problem Statement .................................................................................................................................................................................... 6
2.1 Problem Definition ......................................................................................................................................... 6
2.2 Problem Context ............................................................................................................................................. 8
2.2.1 Gansler Commission............................................................................................................................. 8
2.2.2 Commission on Wartime Contracting (COWC) in Iraq and Afghanistan ................................... 9
2.2.3 DoD Priority Performance Goal 7: Provide effective business operations support to
Overseas Contingency Operations ............................................................................................................... 9
2.2.4 Chairman of the Joint Chiefs of Staff Dependence on Contractor Support in
Contingency Operations Task Force, Phase II: An Evaluation of the Range and Depth of
Service Contract Capabilities in Iraq ......................................................................................................... 10
2.2.5 Commander, International Security Assistance Force/United States Forces-
Afghanistan (COMISAF) Counterinsurgency (COIN) Contracting Guidance .................................. 10
3 Contingency Business Tools Concept ........................................................................................................................................ 10
3.1 Data Strategy................................................................................................................................................. 12
3.2 Common Infrastructure .............................................................................................................................. 14
3.3 Communications Requirements................................................................................................................. 15
3.3.1. Communications Infrastructure ..................................................................................................... 15
3.3.2. Business Systems Design Considerations ..................................................................................... 16
3.3.3. Scope of Communications Requirement ...................................................................................... 16
3.4 Leveraging Existing Tools and Technology .............................................................................................. 17
3.5 Situational Requirements ............................................................................................................................ 17
3.5.1. Kit Configurations Tailored to Operations .................................................................................. 20
3.6 Management Reporting ............................................................................................................................... 21
3.7 Spiral Development ..................................................................................................................................... 21
3.8 Milestones ...................................................................................................................................................... 22
4 Contingency Business Operations Manager (cBOM) ........................................................................................................... 22
5 Governance .................................................................................................................................................................................................. 24
5.1 Stakeholders ................................................................................................................................................... 25
5.2 Users ............................................................................................................................................................... 25
5.3 Functional Sponsors ..................................................................................................................................... 25
5.4 Governance Structure .................................................................................................................................. 25
5.4.1. Contiingency Business Environment Steering Committee ................................................................. 26
5.4.2. Contingency Business Environment Working Groups ....................................................................... 27
5.4.2.1. Backbone Infrastructure Working Group .................................................................................. 27
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5.4.2.2. Communications and Bandwidth Working Group .................................................................. 28
5.4.2.3. Process and Applications Working Group ................................................................................. 28
6 Summary and Conclusion .................................................................................................................................................................. 28
Appendices - Introduction ........................................................................................................................................................................... 1
Funding Requirements: .................................................................................................................................. 3
Appendix A Message Brokering Backbone ...................................................................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Global Exchange (GEX): ................................................................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix B Requirements Generator .................................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Contingency Acquisition Support Model (cASM): ......................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix C Purchase Cards & Convenience Checks ................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Solution - Government Commercial Purchase Card (GCPC) & Convenience Checks: ........... 1
C. Development Milestones: .................................................................................................................... 1
E. Funding Requirements: ........................................................................................................................ 1
Appendix D Field Ordering and Payment Tool ................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution – 3in1 (Ordering, Receiving, and Paying) Tool:................................................. 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix E Tracking and Reporting Cross- Servicing Agreements ................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - ACSA Global Automated Tracking and Reporting System
(AGATRS): ...................................................................................................................................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 2
Appendix F Supplier Relationship Management (SRM) ............................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Joint Contingency Contracting System (JCCS): .............................................. 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix G Contract Writing System................................................................................................................................................... 1
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A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - the Standard Procurement System (SPS): ......................................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix H Electronic Access to Business Documents ............................................................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Electronic Document Access (EDA): ............................................................. 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix I Electronic Receipt and Acceptance ............................................................................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Wide Area Workflow (WAWF): ........................................................................ 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix J Contingency Distribution System................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution – Deployable Distribution Standard System (DDSS): ...................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix K Oversight of Contractor Stewardship of Government-Furnished Property ....................................... 3
A. Requirement: ......................................................................................................................................... 3
A. Interim Solution DoD IUID Registry and GFP Hub:.................................................................... 3
B. Development Milestones: .................................................................................................................... 5
C. Funding Requirements: ........................................................................................................................ 5
Appendix L Management of Contracting Officer Representative Resources .............................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Contracting Officer Representative (COR) Tool: ........................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix M Oversight and Control of Contractors ...................................................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Synchronized Predeployment and Operational Tracker (SPOT): ................ 1
C. Development Milestones: .................................................................................................................... 4
D. Funding Requirements: ........................................................................................................................ 5
Appendix N Contingency Contracting Tools, Templates and Training ............................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - JCC Handbook Online: ...................................................................................... 1
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C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix O Feedback & Lessons Learned ......................................................................................................................................... 2
A. Requirement: ......................................................................................................................................... 2
B. Interim Solution - Joint After Action-Report: ................................................................................. 2
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 3
Appendix P GCC Contingency Contracting Websites ................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution: ................................................................................................................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Contingency Business Environment CONOPS DPAP December 20, 2010
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1 Executive Summary
Warfighters in a contingency environment need easy-to-use tools that simplify the acquisition
process and get requirements fulfilled quickly and efficiently. A major recommendation from the
Commission on Army Acquisition and Program Management in Expeditionary Operations (the
Gansler Commission) was that, ?Expeditionary forces need information technology and e-business
tools.? This recommendation was driven by the determination that expeditionary missions require
the ability to quickly initiate a procurement action, complete the required electronic documents,
route the documents to the appropriate reviewers and approvers, and get the requirements quickly
on contract through a seamless transfer of data. The environment includes combat operations,
stability operations, natural disasters, and other calamitous events—such as those associated with
GWOT, hurricane, tsunami, and earthquake relief, and taming forest fires.
This Contingency Business Environment (CBE) Concept of Operations (CONOPS) outlines a
strategy to drive interoperability when inserting technology and e-business tools into the
contingency environment. The objective is to optimize the acquisition process by providing a
simple, seamless, pre-award, award, and post-award acquisition toolkit to support the end-to-end
contingency business process while making accurate, current, and complete information available to
operational forces, procurement and finance officials, and senior leaders. This will also satisfy
warfighter needs by making contracting information available for planning and operational needs
and will permit timely, accurate business knowledge to be integrated into intelligence, planning, and
operations to better accomplish mission objectives.
The vision for the future electronic applications in the CBE toolkit is to enable interoperability
through a common, reusable infrastructure. The backbone of the infrastructure will provide a
universal standard for all contingency e-business tools, regardless of the lead Service, to enable the
interoperation of "plug and play" tools, the selection of which is tailored to the deployment. The
toolkit available to support an operation will be comprehensive, covering all phases of an acquisition
from requirements development and review through contract award, performance monitoring,
delivery, acceptance, payment, and close-out. The knowledge developed and captured in the process
will be used in both the warfighter and business domains. The suite of tools will also be scalable for
effective performance through all phases of DoD operational life-cycle, from Phase 0, steady state
and shaping, through the operational phases of a contingency, from the most austere deployment to
advanced sustainment operations.
User interfaces will integrate applications and data from disparate service and agency planning and
execution systems and provide access through a portal that allows single sign-on to applications,
access to data and reports, and is configurable with security layers so that appropriate users have
access depending on their roles and responsibilities in the process. The toolkit will be available via
internet access and will be user-friendly in austere environments. The future CBE toolkit would be
implemented so disconnected users could operate 24/7 using ’snapshots’ of data that would be
automatically refreshed with connectivity and synchronized with the main Global Exchange (GEX)
server – DoD’s future enterprise service bus for business system integration. Refreshed information
will be available throughout the information enterprise.
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The CBE Toolkit will provide a service where authorized users can receive information and
accomplish their mission relative to their roles and responsibilities. Procurement officials and
requiring activities and organizations will be able to initiate requirements and review the status of
procurements, resource managers will be able to better plan for future funding requirements, and
senior leadership and planners will be able to monitor the larger picture of the acquisition enterprise
and the impact of contracted support on operational matters.
The key to realizing this business enterprise vision is a data strategy that facilitates interconnectivity
between applications in the toolkit through the flow of data that conforms to standards as defined
by the Financial Data in Procurement (FDIP) and the Standard Financial Information Structure
(SFIS). These standards will also satisfy Global Information Grid (GIG) needs. The strategy
requires gradual phases of system implementation building toward the goal of an enterprise business
architecture that will support defense users by providing readily accessible, accurate, timely and
standard acquisition information supporting end-to-end business processes across tactical,
operational and strategic management levels. Additionally, this CONOPS addresses these
capabilities from an enterprise perspective to reduce and eliminate stand-alone systems wherever
possible.
The tools described in this document will support the larger acquisition process from operational
planning through requirements generation, contract execution, performance assessment, payment
and close-out while feeding business intelligence back to the planners and warfighters. From a
management perspective, the overarching goal is an automated, seamless process and data flow from
planning systems to requirements generation, contracting and financial systems with a phased
approach to building follow-on connections to contract administration and logistics systems. The
data flowing through the systems will be available to senior leaders and warfighters at all times to
support business intelligence and decision making to include planning, spend analysis, supplier
relationship management, staffing requirements, budget decisions, and the future modification of
the overall system as necessary.
2 Problem Statement
2.1 Problem Definition
Contracting in a contingency environment bears all the complexities of DoD contracting in general,
except that it operates at mission-critical tempo, often without the support and connectivity of
contracting at home. The steps from requirement development through contract award, vendor
payment and contract closeout remain the same with business rules linked to the Federal Acquisition
Regulation (FAR). However, the information developed through these steps needs to be available
to both operational (warfighter) and business domains to fully enable mission success. To
complicate the process in a contingency, the organizations involved in the process are often in
different commands and geographically separated from each other. The service member in a
contingency who needs supplies, the military contracting activity that procures the supplies, and the
pay/administrative offices are often separated by great distances with e-business tools that are not
integrated. While this may not be unlike bases, stations, and installations in CONUS, the
complexities in a contingency environment are the relatively austere infrastructure, the volume of
procurement actions, criticality of the requirements, the speed with which they need to be procured,
Contingency Business Environment CONOPS DPAP December 20, 2010
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and the importance of capturing data for planning, intelligence, and operational needs. These
complexities create unique enterprise business problems that require necessary and urgent solutions.
Until recently, there has been little focus on planning for, designing, and deploying technology and
e-business tools suitable for use in an environment that may have little or no connectivity, with high
latency, and varying levels of bandwidth. Similarly, little attention has been paid to end-to-end needs
outside the acquisition business process. Existing enterprise e-business tools were developed to
satisfy the needs of the larger enterprise with little or no consideration given to the operation of
these tools in a contingency environment. Because these tools often require established technical
infrastructure, contracting professionals are limited in the supporting resources and struggle to
provide maintenance and services in the field.
To the extent that systems exist to assist acquisition professionals in today’s contingency operations,
they are home-grown, incompatible, and lack integration with other systems. The acquisition
activities struggle to fulfill requirements in an efficient manner. The lack of efficient and adequate
tools causes operational deficiencies such as incomplete, redundant, and conflicting requirements
and an unsynchronized review process. This causes unacceptable delays in operational oversight,
service delivery and an inability to provide the necessary, time-sensitive, acquisition support.
Requestor
Resource Manager (RM): Validates Budget Line,
Funding Priorities, Complete Market Research,
Complete SOW
-Approves/Disapproves
UPR, Market Research,
SOW, IGE
Hard Copy, Email, Fax
Contracting Office: 1) Enters PR&C into
PD2 2) RCC Chief Assigns PR&C
to KO 3) KO Receives Info to
solicit/award contract from RM
PR&C, Case
Information
Hard Copy,
PRWeb,
AFAMs
CJ8: Validates
Funding
Back to
RM to fix
Funding
Info
Back to Requestor for
further justification
Resource Manager (RM):
Completes PR&C
Complete
PR&C
w/ LOA
Hard Copy, Fax
Email, PRWeb
to PD2
UPR,
Market
Research,
SOW, IGE
Hard
Copy,
Email,
Fax
KO: Solicits then awards Contract via
militarycontracting.com in case of
purchase over 750K or awards contract to
vendor directly for amounts under 750K
Hard
Copy,
Email, Fax
Copy of
Contract
Hard
Copy,
Email,
Fax
Copy of
Contract
Hard
Copy,
Email, Fax
Copy of
Contract
Vendor
Copy of
Contract
Hard
Copy,
Email,
Fax
Requestor: Accepts
Items Signs Invoice
Services/
Items
Delivery
Hard Copy,
Email, Fax
Invoice
KO: Validates
Invoice Information
is Complete
RM: Prepares DD-250
Invoice Hard Copy,
Email, Fax
Requestor: Signs
Receipt/Acceptance
on DD-250
Invoice,
DD-250
Hard Copy,
Email, Fax
RM: Ensures DD-250/
Invoice are accurate
Signed
DD-250
Hard Copy,
Email, Fax
Signed
DD-250/
Invoice
Hard Copy,
Email, Fax
KO: Validates Invoice/
DD-250 Complete
Signed
DD-250/
Invoice
Hard Copy,
Email, Fax
Finance: Processes
DD-250/Invoice for
Payment to Vendor
Vendor: Receives
Payment
CJ8: Receives final
Payment amount and
records against LOA
KO: Addends Payment
Info to Contract –
Files Information
Payment
Info
Hard Copy,
Email, Fax
Payment
Information
Hard Copy,
Email, Fax
Payment
EFT, Check,
Cash
Figure 1 – Procurement and Payment Process in Afghanistan
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Figure 1 displays the multiple steps and actions needed to procure items in the Afghanistan area of
operations, drawn from the perspective of a returning resource manager. There is an immediate
operational need to streamline and improve this process using technological capabilities and a
simplified, more efficient approach to acquisition. Additionally, governmental and defense
leadership is demanding a more effective and transparent acquisition process.
Deficiencies in the current acquisition environment that require improvement include:
? Information Management: Isolated IT systems from DOD services and agencies have not been
designed to interface and share information with other DOD systems, forcing manual data entry
in multiple systems to move information from one to another throughout the end-to-end
business process.
? Communications: Users often go for periods of time with little or no connectivity to the CONUS-
based systems they depend upon for operation. This makes e-tools that are readily available in
CONUS difficult or impossible to access because of practical restrictions on access (bandwith)
and limitations due to operational security.
? Infrastructure: Particularly in the early phases of an operation there may be little or no business
infrastructure available - users need solutions that can operate effectively independent of local
infrastructure and capabilities.
? Data Management: Visibility across the entire spectrum of procurement operations is limited or
non-existent causing an information gap for Defense leadership and making acquisition
decision-making less than optimal;
? IT Solutions: Today’s procurement applications were designed for a garrison activity in CONUS
without consideration of deployment in an austere environment.
? Training and Support: Independent IT programs that have not been integrated into the larger
enterprise system inhibit training efforts as well as creating common support packages.
2.2 Problem Context
2.2.1 Gansler Commission
In its October 31, 2007 report, the Gansler Commission identified training and tools for contracting
activities as critical to future success in contingency contracting. The commission emphasized that
five years into Operation Iraqi Freedom (OIF), deficiencies persisted. The Gansler Commission
documented this need as part of their findings:
The complexity of defining the warfighters’ requirements adequately so that they
can be used as the foundation of a binding contractual agreement that results in
satisfactory performance for the warfighter has been overlooked by those
responsible for resourcing the Army’s shift to outsourcing support services.
Neither the warfighter nor the contracting officer has resources available that
can provide assistance in this area.
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2.2.2 Commission on Wartime Contracting (COWC) in Iraq and Afghanistan
The Commission on Wartime Contracting (COWC) in Iraq and Afghanistan (established by Section
841 of the National Defense Authorization Act for Fiscal Year 2008) was created to assess Federal
agency contracting for:
1. The reconstruction of Iraq and Afghanistan;
2. The logistical support of coalition forces operating in Iraq and Afghanistan; and,
3. The performance of security functions in Iraq and Afghanistan.
Inherent in the COWC’s assessment will be the consideration of the recommendations of the
Gansler Commission. In June of 2009 the COWC issued its interim report AT WHAT COST?
Contingency Contracting in Iraq and Afghanistan where they reiterated the challenges and deficiencies of
contracting support to the Warfighters noted by the Gansler Commission.
The COWC’s interim report stated that the management and planning processes must be enhanced
by identifying business solutions that can capture the requisite data from reliable sources in a
seamless end to end process from requirements generation through contract payment. These tools
will allow leaders to determine the level of contracting activity by monitoring data on the number
and types of procurement transactions, budget appropriations, and contract disbursements. They
can then identify the number, placement, and required level of training of personnel needed to
successfully accomplish the award, administration, and oversight of contracts in a
contingency/deployed environment. The availability of accurate data will make it possible for
managers to continually make adjustments in the workforce and the resultant tempo of the
contracting workforce to match the Warfighter operations tempo. As stated in the COWC Report
?Without accurate and timely contract-transaction data, acquisition managers cannot make quality
strategic-sourcing decisions or provide necessary acquisition workforce and budgetary resources?
Fundamental data points that acquisition managers need for effective planning include:
? Number of transactions
? Transaction values
? Contract type (e.g. fixed price or cost reimbursement)
? Classification of products and services being acquired
? Locations of service-contract performance
It is anticipated that their final COWC report will include actionable recommendations for
improvements in these areas and others that may be discerned during their hearings and analyses.
2.2.3 DoD Priority Performance Goal 7: Provide effective business operations support to
Overseas Contingency Operations
DoD recognizes that inefficiencies in the current acquisition process in the contingency
environment create problems fulfilling contingency requirements in support of the mission in a
timely manner, and established providing effective business operations support to overseas
contingency operations as a Priority Performance Goal. Solving this problem will ensure more
timely delivery of needed supplies and materials, reduce wasteful overstocking, avoid costly interest
penalties, allow for more efficient utilization of funding resources and help prevent fraud.
Contingency Business Environment CONOPS DPAP December 20, 2010
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Resolution of this problem will contribute to DoD’s ability to better accomplish its mission by
getting the right materials in the right quantity for effective utilization. In addition, it will optimize
spending by DoD. These objectives are part of the DoD’s overall strategic goals for prevailing in
overseas contingency operations, strengthening joint warfighting capabilities and transforming
enterprise management.
2.2.4 Chairman of the Joint Chiefs of Staff Dependence on Contractor Support in
Contingency Operations Task Force, Phase II: An Evaluation of the Range and
Depth of Service Contract Capabilities in Iraq
The Chairman’s Task Force review of contractor support in contingency operations identified the
need to determine where the Joint Force is most dependent on contractor support to better
understand the range and depth of contractor capabilities and guide the development of future
contingency planning efforts. In order to develop its recommendations, the Task Force performed
an in-depth review of contracts in use in Iraq. This effort identified shortcomings in data quality,
accessibility, categorization, and completeness. As a result, the Task Force recommended that ?OCS
planning and deployable capabilities must grow substantially and adopt a pre-crisis (Phase 0)
approach to planning and fielding a rapidly scalable, robust ?5th Force? (contractors) that may equal
or exceed the military footprint.? Accordingly, a planning process and planning tools perspective
will evolve alongside expeditionary or execution tools in future generations of the TBE.
2.2.5 Commander, International Security Assistance Force/United States Forces-
Afghanistan (COMISAF) Counterinsurgency (COIN) Contracting Guidance
COMISAF’s 8 September 2010 Guidance stresses that contracting has to be "Commander's
business" and that he expects Commanders to consider the effects of contract spending and
understand who benefits from it. With proper oversight, contracting can spur economic
development and support the Afghan government's and ISAF's campaign objectives. If, however,
we spend contracting funds quickly and with insufficient oversight, it is likely that some of those
funds will unintentionally fuel corruption, finance insurgent organizations, strengthen criminal
patronage networks, and undermine our efforts in Afghanistan. We must be better buyers and buy
from better people We must use intelligence to inform our contracting and ensure those with whom
we contract work for the best interests of the Afghan people.
3 Contingency Business Tools Concept
The DoD established a business system task force committed to leveraging existing resources and
knowledge to quickly provide contingency forces with information technology and simple, user-
friendly, e-business tools in a contingency. The task force’s mission is to establish, in consultation
with the CENTCOM Joint Theater Support Contracting Command (JTSCC), the necessary tools for
contracting officers deployed in support of a contingency operation - mindful of bandwidth, latency,
and connectivity challenges inherent in a contingency operations environment. The intent is to
develop a toolkit approach that evolves as the phase of a mission in the area of operations mature.
Each of these mission phases presents a different set of challenges which the toolkit must address
and different constraints under which the system must operate. These mission phases are:
? Deployment
? Build up
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? Sustainment
? Turnover/redeployment
The task force is addressing the information technology and e-business needs through a holistic
approach that will close the gaps in the acquisition business process. Contracting professionals only
provide a piece of the entire capability – planning, requirements generation, accounting, budgeting,
quality assurance, and contractor performance management are all responsibilities external to
contracting. The task force is looking to leverage existing data and technology in an effort to
improve the overall capabilities. The effort is focused primarily on an agile approach with data being
the lynchpin to interoperability across all business lines for each capability.
In pursuit of this goal, the task force conducted extensive research, working in collaboration with
JTSCC, the Services, and key Defense Agencies, to identify system functions in existing technologies
and e-business tools for potential adaptation to a contingency environment. They also analyzed
existing technologies and e-business tools, with consideration given to different phases of
contingency operations and missions (kinetic, non-kinetic and peace time (humanitarian, aircraft
recovery, natural disaster, etc.)) that address business capability gaps. As a result of this analysis the
DoD determined the following areas need attention to improve the basic contingency business
capability of the end-to-end acquisition business process.
? Tools reserved for small-value purchases:
o Purchase cards
o Convenience checks
o Simplified process for on-the-spot, over-the-counter purchases where the
infrastructure does not support the use of purchase cards
? Requirements determination and acquisition/financial approval—use of a tool appropriate
to the environment (e.g., web based, similar to commercially available tax software)
? Contract writing—use of a tool with user-friendly functionality and availability of all
necessary documents
? Invoicing, receipt and acceptance— use of a secure web-based system, in support of
contingency operations
This CONOPS promotes the development and rapid deployment of a suite of tools to assist in each
phase of the procurement process from requirements development to contract closeout in a logical,
automated, systematic and transparent operation that can easily be transported to, and used in
austere OCONUS or contingency operations. The tools will actively network warfighters,
management, planners, and procurement practitioners into a standardized process that builds, links
and translates raw data into actionable information through a series of interactive tools. The
backbone of this system is the transfer of standard procurement data to and from the systems and
applications in the respective knowledge domains.
To better support business operations in environments where bandwidth, latency and connectivity
present technical challenges, there is a focus on adopting an approach that will enable systems to
operate effectively in an austere environment while permitting seamless end-to-end data flow, from
requirement definition to contract closeout. The approach is based on a construct that leverages
data standards, smart client applications and web services, to the greatest extent possible. This
construct utilizes smart client applications designed to support users and operations regardless of
Contingency Business Environment CONOPS DPAP December 20, 2010
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connectivity. Smart clients are Rich Graphical User Interface (GUI) applications that reside on a
local machine, desktop or laptop, and consist of a light weight database. Moreover, the smart client
is designed to automatically detect whether a user is connected or disconnected; when disconnected
the application stores data locally until connectivity is detected. Once connectivity is restored, the
smart client leverages web services to transmit the data stored locally to the systems centralized
server. Doing so, avoids additional risk and cost introduced when deploying separate instances of a
client-server based system in a contingency. Critical to this model is adherence to data standards and
format specifications defined by a common schema, which provides the ability to successfully
transmit data between the smart client and a centralized server. Ultimately, the approach will permit
systems to pass standard data entered to initiate a contract action to a data warehouse where it can
be used by a contracting writing system to award a contract, and a finance system to effect payment.
The CBE end state is a set of interoperable tools, based on key data elements, that complete critical
elements of the procurement process from requirements development to contract closeout in a
logical, automated and systematic process that can be used in contingency operations OCONUS, as
well as in homeland emergencies. Business objects need to be accessible to the Warfighter across
multiple domains from any NIPRNET connection and generate auditable business transactions to
account for resources used to support mission requirements. Each required business operation
should be supported by an information exchange requirement containing key performance
parameter (KPP). Data used to support CBE operations must primarily be acquired from the
system of record and be supported by a business process.
3.1 Data Strategy
The DoD is committed to providing accurate and timely financial information necessary to support
sound decision-making, prudent expenditure of resources, and to facilitate audit and oversight. A
key component to accomplishing this is readily accessible and accurate procurement data. DoD has
established clear, enterprise-wide contract data standards that will lead to improved accuracy
throughout the DoD’s business systems and support the visibility of the data for all types of
reporting. To this end, DoD has published a Procurement Data Standard (PDS), based on a system-
agnostic data model using common language and business rules, that is intended to become the
DoD-wide standard for contract data output. Use of the PDS for contingency and CONUS
procurement enables actions from both environments to be shared.
The goal of supporting the procurement of supplies and services needed by the Warfighter in a
contingency environment with e-business tools will be best met through systems that use standard
data, so that data is in a format that can be read interchangeably by systems supporting the end-to-
end business process. Figure 2 shows the flow of data from requirements generation through
contract payment.
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P
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E
S
S
S
Y
S
T
E
M
Award & Obligation
Award & Obligation
Receipt and Acceptance
Receipt and Acceptance
Entitlements
Entitlements
Disbursement &
Payment
Disbursement &
Payment
Purchase Request &
Commitment
Purchase Request &
Commitment
1. PRIdentifier,
PRLineItem
PRFundID
Agency
Accounting
Identifier
2a. PIIN/SPIIN,
CLIN/SLIN/ELIN, ACRN
PRIdentifier, PRLineItem,
PRFundID
2b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
3b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
4. PIIN/SPIIN/CLIN/SLIN/ELIN
Acceptance or Approval Data
routed by
Agency Accounting Identifier
5. PIIN/SPIIN
CLIN/SLIN/ELIN
6. Ready to Pay
File
Vendor
Accounting
Contract
Writing
Purchase
Order
Entitlement Requisition
Customer
Receipt
and Acceptance
Contract
Repository
Disbursement
1. PRIdentifier,
PRLineItem
PRFundID
Agency Accounting Identifier 3. PIIN/SPIIN
CLIN/SLIN/ELIN Agency
Accounting
Identifier
2b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
4. PIIN/SPIIN,
CLIN/SLIN/ELIN
2a. PIIN/SPIIN/CLIN/SLIN/ELIN, ACRN
PRIdentifier, PRLineItem, PRFundID
Disbursing Purchase Order
EDA
Vendor
Purchase Request
Customer
7. Ready
to Pay
File
SDI
Contract
Writing
5b.1. Only DCMA
Delegated
Contracts
5b.4. PIIN/SPIN
CLIN/SLIN/ELIN
Treasury
Reporting Data
MOCAS WAWF
3a. PIIN/SPIIN
CLIN/SLIN/ELIN
POIdentifier, POLineitem,
POFundID
ERP
5a.1. Advance
Shipment Notice
(TFO and Self)
5a.2. Acceptance
or Approval
(TFO and Self)
Receipt Invoice Approve Advance Shipment Receipt Accept
Entitlement
6. Acceptance or
Approval (TBO)
Accounting
5b.3. PIIN
SPIIN
CLIN/SLIN
Treasury
Reporting
Data
5b.2. PIIN/SPIIN
CLIN/SLIN/ELIN
5b.5.
PIIN
SPIIN/CLIN
SLIN/ELIN
Figure 2 - Data Flow from Requirements Generation through Contract Payment.
DoD has adopted and is implementing the PDS for the creation, translation, processing, and sharing
of all procurement actions. The PDS defines the minimum requirements for contract writing system
output to improve visibility and accuracy of contract-related data, to support interoperability of
DoD acquisition systems and to standardize and streamline end-to-end business processes. Further,
the PDS will improve visibility of contract-related data, enabling senior DoD leadership to make
better informed business decisions.
Much of the data generated during the requirements development and review process is the same
data that is necessary to affect contract award, track performance and make payment. The tools in
this CONOPS will standardize and simplify the user interface and data capture process from
requirements generation through contract payment. Greater efficiencies resulting from the transfer
of standard data elements throughout the process will in turn:
? Improve Warfighter support
? Enable planning for contracted support
? Improve IPT productivity
? Provide a repeatable process
? Assist newly deployed personnel
? Generate an automated initial draft of all required acquisition documents
? Improve continuity
? Provide management real-time access to acquisition status
? Provide acquisition history and highlight potential bottlenecks
? Provide a centralized and complete acquisition history
? Generate an automated audit trail of the acquisition
? Enable management oversight
Contingency Business Environment CONOPS DPAP December 20, 2010
14
3.2 Common Infrastructure
The tools in the CBE end state will interoperate through a common, reusable infrastructure. The
infrastructure will consist of several components focused on providing an operational construct
leveraging standard data transactions. This backbone will be a common standard for all contingency
e-business tools, regardless of the lead Service, to enable the interoperation of "plug and play" tools
while assisting in achieving interoperable data flow, end to end, from purchase request to contract
closeout.
The interim CBE will leverage a single system to provide message broker, routing, and mediation
services between multiple DoD and Federal government agencies as well as commercial industry.
Moreover, the mechanism will serve as the enterprise service bus for business system integration
across DoD and the Federal community and will provide the means necessary to communicate using
web-services with emerging and legacy systems.
The second component of the common infrastructure will be an enterprise capability that will enable
existing enterprise business capabilities to generate and receive purchase request information. This
capability will store the ?bridge? or linkage between a Procurement Request (PR), the requesting
agency’s accounting system, and the performing agency’s contract writing systems to support a
seamless, transparent, accountable, continuously available and fully deployable PR process.
Finally with the common infrastructure as the backbone, the use of smart client applications and
web services, an acquisition dashboard will provide the interface that will make the tools and data
more accessible and interoperable for all users .This dashboard would be accessible via the internet
within a single sign-on environment and have both on and off-line capabilities depending on
bandwidth, latency, and connectivity levels of the immediate technical environment. Authorized
users will be able to receive any information related to their activity on this acquisition dashboard.
The remainder of this approach is discussed in greater detail throughout.
Required capabilities in the operational end state to address the procurement lifecycle will include
business tools and data necessary to facilitate accomplishing the procurement mission from the
point of requirements generation through to contract closeout. These required capabilities are
identified in below.
Required Capability Proposed CBE Tool
Message Brokering Global Exchange (GEX)
Requirements Generator Contingency Acquisition Support
Module (cASM)
Central Contractor Registry
Central Contractor Registry (CCR)
Central Contractor Registry for Local
Vendors in AOR
Joint Contingency Contracting System
(JCCS)
On-Line Representations & Certifications On-Line Representations &
Certifications Application (ORCA)
Contingency Business Environment CONOPS DPAP December 20, 2010
15
Fed Biz Ops for Local Vendors in AOR Joint Contingency Contracting System
(JCCS)
Single Face to Industry & Government for
Receipt/Acceptance/Invoice
Wide Area Workflow (WAWF)
Single Face to Industry & Government for
Contract Data & Business Intelligence
Electronic Document Access (EDA)
Oversight and Control of Contractors Synchronized Predeployment and
Operational Tracker (SPOT)
3.3 Communications Requirements
3.3.1. Communications Infrastructure
Acquisition officials continue to wrestle with the challenges created by today’s communication
infrastructure. With the recently approved Global Defense Posture we have the opportunity to build a
Joint C4 Enterprise architecture, looking beyond the current battles of Iraq and Afghanistan to
proactively shape the area of operation as the environment matures. Acquisition system architecture
relies on a robust Defense Information Systems Network (DISN) infrastructure capable of seamlessly
providing commercial quality service to the area of operation following the key tenets of survivability
and performance while providing defense in depth. Communications required support and sustain
business operations need to be addressed before, during and after deployment.
In the future, DoD will migrate to a communications architecture that is more robust, flexible, and
supportive of contingency missions. Today, personnel in theater are using internet protocol (IP)
satellite modems beyond the tactical applications and are employing them across the backbone to
extend C2 services. Established Enterprise standards, DoD and service policies create domains that
are integrated by common ’Digital Rules of Engagement’, where functionality is facilitated at the
application layer. Planners implement network operations across the Global Information Grid
(GIG) through a common set of standards and tools that allow us to see the network from end to
end. DoD network planners and operations engineers manage complex and constantly changing
networks, and are responsible for the performance and uptime of business-critical services and
applications. To face these challenges, defense network providers will need to rely on software
solutions to:
? Accelerate new network services and technology to deploying military units
? Optimize network performance through traffic engineering and right-sizing of capacity
? Reduce the risk of downtime and misconfigurations
? Increase security and operational integrity with scheduled audits to pinpoint problems
? React to critical network issues using real-time network troubleshooting
The contingency business environment will require adequate support from the physical
telecommunications networks provided by DISA. This support may be in the form of dedicated
bandwidth or predictable communications windows to allow the seamless flow of data to support
the business processes. Prior to implementation, a telecommunications service request must be
made to DISA and the applicable COCOM.
Contingency Business Environment CONOPS DPAP December 20, 2010
16
3.3.2. Business Systems Design Considerations
The contingency business environment will require adequate support from the physical
telecommunications networks provided by DISA. This support will be in the form of dedicated
bandwidth or predictable communications windows to allow the seamless flow of data to support
the business processes. Prior to implementation, a telecommunications service request must be
made to DISA and the applicable CoCOM. That said, with greater attention to the communication
constraints inherent to the CBE, these challenges can be addressed by the Department through
smart system design and deployment approaches.
Below are the elements that must be considered when deploying systems in the contingency
environment. The first set applies to interaction with the communication infrastructure.
? Latency (ms)
? Utilization (%)
? Max Capacity (Kb/s)
? Allocated Capacity (Kb/s)
? Security Requirements
? Traffic Contention Characteristics
? Link Availability Characteristics
? Traffic Prioritization Characteristics
? Packet Loss Rate
Also, essential to defining a communication environment is the classification constraints inherent to
that environment. Some of the elements that need to be evaluated are:
? Data Sensitivity
? Classification
? PII
? Aggregation and Compilation
? NIPRNET vs SIPRNET Operations and Functions
Lastly, lean data exchange characteristics should also be defined as part of the communication
environment to include:
? Amount
? Type
? Update frequency
? Priority – Content or Quality of Service
? Number of Exchange patterns
? Confidentiality
? Integrity
As part of an implementation plan further detail regarding an approach to defining these elements
should be documented and a central knowledge base developed to capture unique communication
characteristics of the contingency environment.
3.3.3. Scope of Communications Requirement
Contingency Business Environment CONOPS DPAP December 20, 2010
17
The IT Backbone required for a single regional contracting center (Kandahar Regional Contracting
Center, KAF-RCC located in Kandahar, Afghanistan) can be used as a baseline for defining and
scoping communications requirements for a contingency operation. The KAF-RCC has internet
access via a 2MB/2MB 1:1 symmetric satellite link from Kandahar to a hub teleport located in Hong
Kong, China. This service provides a dedicated capacity of 2MB to Kandahar and 2MB dedicated
capacity from Kandahar to the internet. A dedicated satellite modem connects to a router that
provides access to the commercial internet. This approach is efficient in its use of satellite
bandwidth and guarantees the quality of service since the capacity is dedicated to this single user and
is not shared.
3.4 Leveraging Existing Tools and Technology
This CONOPS does not describe the execution framework for implementing the CBE. However,
the plan relies on maximizing of existing tools, technology, and systems developed by the Services
and tailoring them for joint use in the contingency environment. This approach will mitigate
technical development risk, minimize development cost, and expedite fielding. To this end, the
DoD and Services are modifying multiple systems identified in the appendices to this CONOPS.
DoD is also modifying the JCCS to provide a front-end dashboard and database for the multiple
applications and underlying data in the contingency e-business system. This capability, described in
the introduction to the appendicies, will standardize reporting across system applications and enable
independent verification and validation of data.
The DoD’s enterprise-wide contract data standards will be used throughout the contingency
business systems. All applications will generate and transmit data in a non-proprietary XML format
that conforms to the DoD Procurement Data Standard for use across the supply chain to enable
reporting in various formats to legacy applications.
Access to applications and data will be provided through secure encrypted digital authorizations
using a DoD Common Access Cards (CAC)-enabled Public Key Infrastructure (PKI) capability.
CAC requires access t9o and use of Real-Time Automated Personnel Identification System
(RAPIDS). RAPIDS is used to issue and maintain CAC and uses personnel information in the DoD
Defense Enrollment and Eligibility Reporting System (DEERS). A contingency application for both
these systems will be required to enable CAC/PKI capability.
3.5 Situational Requirements
Business operations must support all types of contingencies and all phases of the operation. This
will requires adopting, to the greatest extent possible, the concepts introduced within this document.
While some business operations may better serve the Warfighter needs with processing in a
centralized CONUS location, the ultimate goal is to establish the framework for a comprehensive
and innovative set of e-business tools to support procurement process that is seamless, transparent,
accountable and fully deployable. The operational end state will consist of stable applications with
simple user interfaces that operate successfully and consistently where there is limited or no
communications connectivity and bandwidth, intermittent connectivity and/or high latency (delay to
download/transfer of information). Requirements officials, Contingency Contracting Officers
(CCOs), and Contracting Officer Representatives (CORs) will be provided appropriate technology
Contingency Business Environment CONOPS DPAP December 20, 2010
18
(laptops and handheld devices with contingency e-tools preloaded, bundled in ?kit? configurations
tailored for the phase of the operation and the role of the individual users, with scanners, printers,
and redundant power, appropriate for the operation and environment).
While no two contingencies are alike, the model is based on the ability to leverage smart client
applications that are capable of supporting disconnected operations when users are deployed to
remote locations that lack communications connectivity. Additionally, to support operations during
the initial phases of an operation, when the communications infrastructure has yet to be established,
the smart clients must have the capability to import/export data in a specific format being defined
by a common schema specification. This enables disconnected users extended amounts of time
while being disconnected while still allowing data to flow, end-to-end, from purchase request to
contract closeout. Once connectivity is restored, the smart client transmits data stored locally via
web service, or batch file, to the systems centralized server which resides in CONUS.
All participants in the contingency procurement lifecycle will have access to appropriate business
tools and data necessary to effectively accomplish the procurement mission from the point of
requirements generation through to contract closeout. E-Business tools will reflect the phase of the
contingency operations and the operations tempo of the environment in which they are used. E-
Business tools will be employed to reduce the amount of time all players expend to provide the
various data that form the backbone of the process for getting the user the supplies needed, and
getting the vendor paid. The management and planning processes will also be provided with
accurate procurement data that has been captured throughout the process that facilitates optimizing
the workforce to match operations tempo and planning for the next contingency.
The top portion of Figure 3 illustrates the four phases of a contingency operation and the types of
contracting support that is generally associated with each phase of the operation. The bottom
portion of Figure 3 is a separate illustration (unrelated to the phases of the operation) of the stages
in the end-to-end process of procuring supplies and services in a contingency environment.
Contingency Business Environment CONOPS DPAP December 20, 2010
19
Figure 3 – Contracting for OCS in the Four Phases of a Contingency Operation
The e-business tools are intended to operate successfully and consistently with limited or no
communications connectivity and bandwidth, intermittent connectivity and/or high latency (delay to
downloading and transferring of information). Appropriate Warfighters (requirements generators),
CCOs, and CORs will be provided with laptops that have the contingency e-Tools preloaded,
bundled in ?kit? configurations tailored for the phase of the operation and the role of the individual
users, with scanners, printers, and back-up power, appropriate for the operation and environment.
All tools, in all phases of the operation, will be capable of operating as Web-based client/server
applications, but also capable of operating, for limited periods of time, on stand-alone laptops in
remote locations that lack communications connectivity. In such circumstances, the laptop
applications will transmit data to Web-based servers when connectivity, either wireless or through
landline, becomes available.
The extent to which e-business tools may be appropriate for deployment in the different phases of
an operation is largely driven by the communications requirements of the tool, and the extent to
which the tool can operate without communications for a significant period of time. The tools,
identification of whether communications connectivity is required, and the operational phases in
which the tool may be deployed are identified in the chart below. (Each of these tools is discussed in
greater detail in the appendices to this CONOPS.)
Appen Acquisition Laptop Phase I Phase II Phase III Phase IV
Contingency Business Environment CONOPS DPAP December 20, 2010
20
Appen
dix
Tool Comms w/o
Comms
Deploy
ment
Build-up Sustainment Drawdown
A GEX Yes No No Yes Yes Yes
B cASM Yes Yes Yes Yes Yes Yes
C Purchase Card Yes N/A Yes Yes Yes Yes
C Convenience
Check
Yes No Yes Yes Yes Yes
D 3in1 Yes Yes Yes Yes Yes Yes
E AGATRS Yes No No Yes Yes Yes
F SRM Yes Yes Yes Yes Yes Yes
F CPPS Yes No Yes Yes Yes Yes
G SPS-C Yes No No Yes Yes Yes
H EDA Yes No No Yes Yes Yes
I WAWF Yes No No Yes Yes Yes
J DDSS Yes Yes Yes Yes Yes Yes
L IUID Registry Yes No No Yes Yes Yes
L COR Tool Yes Yes Yes Yes Yes Yes
M SPOT Yes Yes Yes Yes Yes Yes
N JCC Handbook Yes Yes Yes Yes Yes Yes
O JAAR Yes No Yes Yes Yes Yes
P GCC Websites Yes No Yes Yes Yes Yes
3.5.1. Kit Configurations Tailored to Operations
The tools must operate as an efficient and effective suite that is seamless to the users in the
environment in which it is deployed. Users do not need additional tools or systems, regardless of
how well they might work, that require multiple entries of the same data into different systems in the
end-to-end business process.
New tools will be preloaded onto laptops and provided to appropriate Warfighters, CCOs, and
CORs in ?kit? configurations, bundled with scanners, printers, and back-up power, appropriate for
the operation and environment.
Contingency Business Environment CONOPS DPAP December 20, 2010
21
All tools will be capable of operating as Web-based client/server applications, but also capable of
operating on stand-alone laptops in remote locations where there is limited or no communications
connectivity and bandwidth, intermittent connectivity and/or high latency. In such circumstances,
laptop applications will transmit data to Web-based servers when connectivity becomes available.
This will be accomplished through the use of smart client applications designed to support users and
operations regardless of connectivity. Smart clients are Rich Graphical User Interface (GUI)
applications that reside on a local machine, desktop or laptop, and consist of a light weight database.
The smart client is designed to automatically detect whether a user is connected or disconnected;
when disconnected the application stores data locally until connectivity is detected. When
connectivity is restored, the smart client leverages web services to transmit the data stored locally to
the systems centralized server which resides outside of the congtingency. Critical to this model is
adherence to data standards as the ability to successfully transmit data between the smart client and a
centralized server requires data to be passed in a specific format being defined by a common schema
specification.
3.6 Management Reporting
Operational e-business tools will integrate business processes that link the enterprise architecture to
data and information management. This will encourage cooperation with other related business
domains, across DoD and provide consistent, full-spectrum acquisition processes and tools across
the joint environment.
COMISAF's Counterinsurgency (COIN) Contracting Guidance states that commanders must know
what contracting activity is occurring in their battlespace and who benefits from those contracts.
Contracting and procurement needs to reinforce rather than detract from mission objectives.
Contracting information needs to be integrated into intelligence, plans, and operations to exert
positive influence and to better accomplish campaign objectives. Commanders should use COIN
Contracting Management Boards to coordinate contracting efforts and ensure contracts support
campaign goals. Commanders and contracting agencies should share best practices, align policies
and procedures, and exchange information on contractor performance-positive or negative.
This situational awareness of the acquisition process will be provided through a role-based/process
dashboard in which the Warfighter and other stakeholders are provided with visibility, traceability
and active control of the acquisition enterprise.
Users can view the status of an acquisition through the CBE dashboard by using an internet-
connected computer to help them with order management. Management and planning will have real
time access to the status and detailed information about acquisitions through similar role-based
configurations of the CBE dashboard. This data can be used to assist commanders, Warfighters,
and all of the associated contract support personnel with requirements planning, development and
tracking for improving Operational Contracting Support (OCS) planning. In addition, senior leaders
and auditors will have visibility and traceability of the process through the CBE dashboard to ensure
the responsible expenditure of funds.
3.7 Spiral Development
This CONOPS does not describe an execution framework. Instead it describes a strategy for
Contingency Business Environment CONOPS DPAP December 20, 2010
22
achieving interoperability when inserting technology and e-business tools into the contingency
environment. However, it is critical that the new tools meet user needs and provide operations
efficiencies while improving mission effectiveness. DoD will use evolutionary acquisition/spiral
development techniques to get new tools into the hands of the Warfighter and contracting personnel
more quickly and maximize the use of user feedback in refining requirements and developing
subsequent increments of capability. New tools will be pilot tested in operating units and refined
prior to limited deployment to selected units, followed by full deployment of proven technology.
3.8 Milestones
Each of the tools in the suite has individual development and deployment milestones, which are
identified at the end of each tool’s description in the appendices. The overall goal is to have an
initial tool kit containing the spiral one application of mission critical systems ready for deployment
in the Third Quarter of FY11.
4 Contingency Business Operations Manager (cBOM)
Realization of the goal of providing a simple, seamless, pre-award, award, and post-award acquisition
toolkit to support the end-to-end contingency business process across multiple domains will require
a Contingency Business Operations Manager that coordinates joint business systems implementation
across a contingency area of operation. The cBOM should be a function of the Joint Staff as the
primary responsibility will be to act as an advocate for the business community to the operational
commander or COCOM responsible for:
? Coordinating communications and backbone needs on behalf of the finance, logistics and
acquisition communities supporting the warfighter.
? Coordinating use of joint business tools in a specific contingency environment to include:
• Tracking and census of contractors
• Determining requirements, allocating funds to requirements, issuing contracts;
confirming contract deliverables and performance; enabling contract payment
• Tracking cash management
• Issuing and managing logical and physical access to DoD by contractors
The cBOM will also be responsible for coordinating with JCASO to ensure planning of joint
business needs are coordinated with the operational commanders intent for contingency operations.
While this Concept of Operations identifies a number of processes to be supported and potential
solutions that may be deployed, some of these solutions have multiple constraints that must be
considered and addressed. These include:
? Diversity of the contingency environments in which the technology must operate. Tools in
the suite must operate in environments with limited bandwidth, intermittent connectivity
and high latency.
? Ability of the DoD to adapt and enforce clear, enterprise-wide data standards across its
business systems. The objective of a seamless suite of applications that do not require
Contingency Business Environment CONOPS DPAP December 20, 2010
23
multiple entries of the same data into different systems will remain elusive if the DoD fails
to enforce acquisition data standards.
? The development of electronic interfaces between the business and legacy financial systems.
? Automating data input and validation and minimizing the need for redundant manual data
entry to ensure information integrity.
? The development of a contract writing tool with a small footprint. It must operate using
standard data provided from a requirements generating tool, with a financial feed so that
routing of both the requirement and funding line is supported and can serve as a source
document for contract execution, administration and payment.
In order to address these challenges, it is paramount that a comprehensive implementation plan be
devised and adhered to as a means of mitigating the risks associated with these challenges and the
sometimes austere physical and operational conditions found in the contingency environment. While
this CONOPS attempts to address immediate concerns in the Contingency Business Environment,
no two contingencies are alike. The solutions proposed here are intended to provide near-term
relief to the Warfighters’ business needs in multiple contingencies and are an interim response until a
systematic, end-to-end solution may be developed and deployed. As an interim solution set, it is
important that the cBOM develop an implementation plan that will enhance our ability to modify
and deploy follow-on solutions with minimal operational impact to the Warfighters.
At a minimum, the implementation plan should incorporate field testing plans to evaluate actual
system performance in a variety of contingency environments and should address:
? Definition of system end user, owners, and their required capabilities
? Definition of stakeholders
? Specific Service component stakeholders
? Programmatic business system stakeholders
? Delineation of responsibilities for technical support
? Delineation of responsibilities for systems integration
? Mapping of System Functions to End to End Business Process
? Data standards
? Physical locations of equipment
? Connectivity requirements
? Service Oriented Approach vs System Deployment Approach
? Bandwidth requirements for each system down to the end user Communications equipment
required Addresses
? Expeditionary Contingency Contracting governing directives
? Training and Support
An effective implementation plan will comply with accepted contingency contracting guidelines and
will have its underpinning in the Gansler Commission findings. In line with that report, the
implementation plan must be sensitive to end user workload, address training plans that enhance the
business environment's resiliency toward fraud, waste and abuse, and it must not increase the
complexity of the technical operating environment or processes without a commensurate increase in
capability to the end user.
Contingency Business Environment CONOPS DPAP December 20, 2010
24
The CBE CONOPS will require careful monitoring and adjustments as necessary during
execution. The implementation plan—which will identify the sequence in which the projects
should be undertaken and describes key aspects of each project—will help bridge the gap
between where the CBE systems are today and where they need to be to support future
contingencies. The numerous development projects required to implement the CBE CONOPS
vary in complexity, but are interrelated. Therefore, the CBE should be treated as a program,
operating with consistent oversight and management toward implementation. This program
should be viewed as a shared effort among the domains providing business support to the
warfighter. Thus, one of the initial steps will be to develop the implementation plan, objectives,
and milestones.
5 Governance
Acquisition, procurement, logistics and finance communities own the processes involved in
contingency acquisition and must contribute to resolving the problems outlined in the CONOPS.
Some of the inefficiencies experienced in a contingency are due to the current stove-piped nature of
processes and systems used by these four domains. Moving to the desired future state will require
collaboration in a seamless, integrated process across the domains. Figure 4 illustrates the process as
an acquisition moves multiple times through multiple domains and systems.
Financial Management
2132020.00000 5X-6X20 123456.00000 662G
25POLI P68EY78945J123 POLI25 123456
Lines of Accounting
2132020.00000 5X-6X20 123456.00000 662G
25POLI P68EY78945J145 POLI25 123456
DoD Budget
Submission
Appropriations
Total Government Contractor Total Government Contractor
14-Aug-00 60 60 - 100 100 - 16-Oct-00 118 118 - 955 955 - 1-Nov-00 165 165 - 1,160 1,160 - 1-Dec-00 246 246 - 1,631 1,631 - 21-Dec-00 543 310 233 1,721 1,721 - 25-Jan-01 840 449 391 2,900 2,900 - 5-Feb-01 941 465 476 3,624 3,624 - 1-Mar-01 1,225 549 676 6,928 6,050 878 29-Mar-01 1,504 678 826 9,827 8,787 1,040 4-May-01 1,766 800 966 11,504 10,328 1,176 11-Jun-01 2,130 890 1,240 13,000 11,648 1,352 6-Jul-01 2,326 979 1,347 14,356 12,864 1,492 3-Aug-01 2,757 1,056 1,701 16,234 14,536 1,698 31-Aug-01 3,136 1,083 2,053 18,199 16,182 2,017 5-Oct-01 3,595 1,150 2,445 19,902 17,357 2,545 2-Nov-01 3,985 1,214 2,771 21,558 18,791 2,767 7-Dec-01 4,481 1,265 3,216 23,373 20,245 3,128 4-Jan-02 4,695 1,237 3,458 24,122 20,840 3,282 1-Feb-02 5,109 1,212 3,897 25,964 22,232 3,732 1-Mar-02 5,515 1,216 4,299 29,541 25,626 3,915 5-Apr-02 6,132 1,325 4,807 32,652 28,392 4,260
Users Assessments Retrieved
Commitment
Total Government Contractor Total Government Contractor
14-Aug-00 60 60 - 100 100 - 16-Oct-00 118 118 - 955 955 - 1-Nov-00 165 165 - 1,160 1,160 - 1-Dec-00 246 246 - 1,631 1,631 - 21-Dec-00 543 310 233 1,721 1,721 - 25-Jan-01 840 449 391 2,900 2,900 - 5-Feb-01 941 465 476 3,624 3,624 - 1-Mar-01 1,225 549 676 6,928 6,050 878 29-Mar-01 1,504 678 826 9,827 8,787 1,040 4-May-01 1,766 800 966 11,504 10,328 1,176 11-Jun-01 2,130 890 1,240 13,000 11,648 1,352 6-Jul-01 2,326 979 1,347 14,356 12,864 1,492 3-Aug-01 2,757 1,056 1,701 16,234 14,536 1,698 31-Aug-01 3,136 1,083 2,053 18,199 16,182 2,017 5-Oct-01 3,595 1,150 2,445 19,902 17,357 2,545 2-Nov-01 3,985 1,214 2,771 21,558 18,791 2,767 7-Dec-01 4,481 1,265 3,216 23,373 20,245 3,128 4-Jan-02 4,695 1,237 3,458 24,122 20,840 3,282 1-Feb-02 5,109 1,212 3,897 25,964 22,232 3,732 1-Mar-02 5,515 1,216 4,299 29,541 25,626 3,915 5-Apr-02 6,132 1,325 4,807 32,652 28,392 4,260
Users Assessments Retrieved
Obligation
Expenditure
Property, Logistics,
and Transportation
Requirement
Contract
Need
Inspection
Delivered Property
Acceptance
Line Item
Requisition
Shipping Notice
Transportation
Receiving
Property Log
Acquisition Process
Acquisition
AAI
IUID/RPUID
Contract #
&CLIN &
SPIIN
Figure 4 – Acquisition Process through Multiple Domains
Contingency Business Environment CONOPS DPAP December 20, 2010
25
5.1 Stakeholders
Combatant Commanders are the primary stakeholders in the deployment of acquisition tools for the
contingency environment. They require the acquisition of supplies and services in their AORs to be
streamlined, simplified, and expedited. The Joint Contingency Acquisition Support Office (JCASO),
which DoD established to develop joint policies that provide for a ?preplanned organizational
approach to program management? for contractors authorized to accompany the force is a critical
stakeholder for ensuring that the success of the CBE acquisition CONOPS. JCASO advances
acquisition management of Operational Contract Support (OCS) for planning, exercises and
training; and when requested by a Combatant Commander (CCDR) during contingencies, JCASO
deploys as an enabling joint staff organization to augment the CCDR staff for OCS support.
Beyond that, every entity involved in contingency acquisitions is a stakeholder in the success of these
tools, especially those charged with providing contracting support to the Warfighter. This includes
all contractors and vendors who ultimately receive contracts, deliver supplies and services, and
receive payment from DoD have an interest in seeing this process improved.
5.2 Users
The primary users of these tools are the Warfighters who require and must be aware of the
requirements and sources of supplies and services in the AOR and the Contingency Contracting
Officers who execute the procurements to fill those requirements. Secondary users include all
participants in the end-to-end process.
5.3 Functional Sponsors
Functional sponsors within the four domains; acquisition, procurement, logistics, and finance, are
responsible for identifying the specific requirements and the resources necessary for developing
systems to meet those requirements in a contingency operation.
5.4 Governance Structure
Key to the success of implementing a contingency toolset is involvement by the four domains
named above, as well as the active involvement of operational entities (combatant commands). At
both the executive level and working group level, these communities must be full participants in
identifying and resolving problem areas.
Contingency Business Environment CONOPS DPAP December 20, 2010
26
Figure 5 –Contingency Business Environment Governance Structure
5.4.1. Contiingency Business Environment Steering Committee
The steering committee will be responsible for timely and cost efficient implementation of CBE
business capabilities and translating DoD business strategies, policies, and procedures into a
coherent CBE strategy and implementation plan. In addition, this group will develop and ensure
resourcing for required information technology support as part of a broader information technology
portfolio. The steering committee should include senior representatives from:
? Under Secretary of Defense (Acquisition, Technology and Logistics)
o Defense Procurement and Acquisition Policy (DPAP), Chair
? Defense Contract Management Agency (DCMA)
o Defense Acquisition Resources and Analysis (DARA)
o Logistics and Material Readiness (LM&R)
? Defense Logistics Agency (DLA)
? Under Secretary of Defense (Comptroller)
o Deputy Chief Financial Officer (DCFO)
? Defense Contract Audit Agency (DCAA)
? Deputy Chief Management Officer (DCMO)
o Business Transformation Agency (BTA)
? Military Services:
Contingency Business Environment CONOPS DPAP December 20, 2010
27
o Joint Staff (J4 – Logistics, J6 – C4; J8 - Force Structure)
o Defense Logistics Agency (DLA)
o Army
o Navy
o Air Force
o Marines
5.4.2. Contingency Business Environment Working Groups
The Contingency Business Environment Working Groups will be the working-level bodies,
reporting to and advising the steering committee. The working groups will be responsible for
providing subject matter experts to conduct in-depth review, analysis, and resolution of technical,
procedural, and policy issues related to implementation of the CBE toolset. They will provide
recommendations to the steering committee based on their findings.
Membership should include worker-level individuals from the communities represented on the
steering committee: DPAP, DARA, LM&R, BTA, and DCFO. Membership should include
Combatant Command representatives and DLA to provide Warfighter requirements and Joint Staff
representatives to provide additional functional expertise. From the Joint Staff, especially critical is
participation by J4 (Logistics), J6 (Communications), and J8 (Force Structure, Resources, and
Assessment).
The responsibilities of the working groups should include:
? Identifying functional and technical strategic capabilities/activities that should be
standardized enterprise-wide capabilities across the acquisition portfolio and decide when
needs justify exceptions to these standard capabilities/activities
? Establishing a data strategy for the identified enterprise acquisition assistance processes
? Determining the enterprise level resources required to support the enterprise strategy and
implementation plans in the context of the overall portfolio
? Representing needed enterprise level resource requirements to the CBE Steering Committee
? Establishing measurable business objectives and associated metrics in a strategy
implementation plan
? Communicating and implement decisions within respective represented community
? Conducting appropriate change management efforts within respective organizations
? Supporting authority and responsibility of the change control boards in the CBE
? Acting as final decision authority for issues requiring arbitration from the change control
boards in the CBE
? Establishing and maintain requirements groups /change control boards (CCBs) for the
capabilities and systems in the CBE
Three working groups are required to address specific challenges:
5.4.2.1. Backbone Infrastructure Working Group
This working group will define the requirements for the backbone systems required for the CBE
suite of tools to operate.
Contingency Business Environment CONOPS DPAP December 20, 2010
28
5.4.2.2. Communications and Bandwidth Working Group
This working group will define the communications and bandwidth requirements for the CBE
CONOPS. This will require identifying the communications needs of each application, and defining
the overall communications needs for the CBE CONOPS in each phase of an operation.
5.4.2.3. Process and Applications Working Group
This working group will define processes that will be used in each phase of an operation, and the
systems applications that will support those processes.
6 Summary and Conclusion
Contract support in the contingency environment is a combat multiplier and critical factor on the
battlefield. Due to the nature of the current manual operations which comprise the procurement
process, the speed of the acquisition process does not keep pace with the Unit Commander’s
combat needs. Adoption of the unified e-business tool suite identified in this Concept of
Operations will improve the efficiency, effectiveness, traceability and accountability of the
contingency procurement process.
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendices - Introduction
The Gansler Commission indicated that ?information systems to track contractor personnel, assets,
and performance are critical but lacking. Commanders need a common, relevant picture of
contractors in the battle space, for operational planning, logistics planning, and situational
awareness.? This ability does not exist today because of the generation of software tools that are
available. Functional experts generally create tools that apply only to their area of control. These
tools tend to be natural stovepipes of information and are poorly integrated with other ancillary
functions. Today, users must log into numerous systems, extract data, and then transform that data
into useful information. This process can be eliminated applying the principles of net-centric
planning and intelligent use of service oriented architectures.
The CBE CONOPS uses a dashboard that, as an interim solution for rapid deployment, integrates
data from disparate solutions and presents that data through a user-configurable portal. This
solution has nominally been designated the Joint Contingency Acquisition Management System
(JCAMS). It will reside on the backbone of what currently is JCCS, a tool originally designed to
capture and manage contingency contract data. JCCS has already been expanded to include a
contract writing capability for use in austere environments, supplier relationship management tools
(see Appendix F), Acquisition Cross-Servicing Agreements (ACSA) tracking and reporting (see
Appendix E), and the 3in1 Field Ordering Receipt and Payment Tool (see Appendix D).
All CBE tools should be designed with service orientated architecture in mind in order to make the
tools and data more accessible and discoverable by other DoD activities. JCAMS would access to
each of the CBE tools within a single sign-on environment. JCAMS would be available on the
internet. A desktop instance of JCAMS could also be deployed so that disconnected users could
receive ?snapshots? of information during the time that they have connectivity and can synchronize
with the main JCAMS servers.
JCAMS should provide authorized users the ability to retrieve information related to their activity:
Warfighters reviewing requirement status, resource managers planning for upcoming requirements
or release of funds, contracting leadership monitoring acquisition activity and metrics by region, etc.
The Gansler report also noted that the number and complexity of contracts has increased
significantly, while the supporting workforce has diminished. When participants in the contingency
procurement process need help writing performance work statements, quality assurance surveillance
plans or complex contracts where can they turn for advice? Real-time collaboration tools like the
Army’s Green Force Tracker (GFT) provide a way to integrate reach-back support at the desktop
level. Desktop collaboration tools will be available through JCAMS providing encrypted
communication, with real-time availability of subject matter experts, cross-domain chat integration
via XMPP, file transfer and desktop image sharing. This capability in JCAMS will allow for the
creation of dynamic contact grouping so that contracting support contacts can be separated for
easier identification. This capability facilitates the use of reach-back and reach-forward support for
all acquisition participants.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
JCAMS - Dashboard for with visibility, traceability and active
control of the expeditionary acquisition enterprise
Pre-Solicitation / Pre-Award Solicitation / Award / Post-Award
Finance Requirements Contracts QA/CORs Logistics Collaboration
Reachback
cASM
SRM
DDSS
WAWF
GCC Websites
GCPC
3in1
WAWF COR Tool
JAAR CC Handbook
WAWF SPOT
SPS
Collaboration
GCC Websites
CC Handbook
JAAR AGATRS
IUID Registry EDA
EDA
GEX
SPOT GCPC
Figure 5 – Contingency E-Business Tools in a Common, reusable infrastructure within JCAMS Dashboard.
The intent is to provide a dashboard for the multiple applications outlined in this CONOPS and to
provide access to the underlying data in the contingency e-business system. The dashboard will
provide acquisition data and reports to requiring activities, contingency contracting officers, field
ordering officers, and operational commanders. The chart below identifies the interim tools
identified in the appendices to this CONOPS. As mentioned above, the Acquisition Cross Servicing
Agreement (ACSA) Global Automated Tracking and Reporting System (AGATRS), the Supplier
Relationship Manager (SRM) applications, and the 3in1 Tool have been integrated into the JCCS
dashboard.
The chart below identifies whether the acquisition tool would be able to operate independently in
austere environments with little or no communications connectivity to the Web or the JCAMS
server.
Capability Tool Comms w/o Comms
Message Brokering Backbone GEX Yes Yes
Requirements Generation and Tracking cASM Yes Yes
Purchase Card Management GCPC Yes No
Convenience Check Management Convenience
Check
Yes Yes
FOO and Paying Agent Management 3in1 Yes Yes
Contingency Business Environment CONOPS DPAP December 20, 2010
3
ACSA Order Tracking System AGATRS Yes No
Vendor Outreach & Management SRM Yes No
Contract Writing and Tracking SPS-C Yes Yes
Electronic Document Access EDA Yes No
Receipt & Invoice Management WAWF Yes No
Receive, Store, & Distribute. DDSS Yes Yes
Track and Manage CORs COR Tool Yes Yes
Track Contractor Personnel SPOT Yes Yes
Just-In-Time Tools & Training JCC Handbook Yes Yes
Deployed CCO Feedback Loop JAAR Yes No
Theatre OCS Policy & Procedures GCC Websites Yes No
The chart below, in a format carried throughout this CONOPS, shows that JCAMS as a
procurement dashboard can operate independently on a laptop with little or no communications
connectivity to the Web or the main JCAMS server. This makes the JCAMS platform especially
useful in an initial deployment and buildup phase when communications are limited. The chart
below also shows the planned use and deployment of the JCAMS application in the four phases of a
contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCAMS Yes Yes Yes Yes Yes Yes
Funding Requirements:
Funding requirements for JCAMS have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$ 3.978M $ 4.137M $4.303M $4.475M $4.654M $4.840M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix A Message Brokering Backbone
A. Requirement:
Because of the expected requirement for access information on demand and the need for it to be
actionable, contingency business applications will need to acquire and use more Net-Centric
Enterprise Services (NCES) to enable information sharing by connecting people and systems that
have information (data and services) with those who need information across the Department.
Under this concept, the Warfighter will be able to update the business environment with the current
state of nature and share it with the entire community.
B. Interim Solution - Global Exchange (GEX):
The enforcement mechanism for standard transactions is the Global Exchange (GEX). The GEX
service provides message broker, routing, and mediation services between multiple DoD and
Federal government agencies as well as commercial industry. Formerly known as the Defense
Business Exchange (DEBX), the GEX has been under continuous development since 1996 to serve
as the enterprise service bus for business system integration across DoD and the Federal
community. GEX currently processes over 120 million transactions each month, over 1.6 billion a
year and connects over 7600 sites to approximately 180 information systems.
With GEX as the message brokering hub, the common, reusable infrastructure will leverage DoD's
investment in the new tools. The ability to adopt tools from other Services and allow interfaces with
the common infrastructure presumes GEX will be operating in a contingency.
GEX User Community
DFAS:
FASTDATA
Office of Naval Research
Stars Accounting
Mechanicsburg Telink System
Mechanicsburg STARBAT
Electronic Certifying System (ECS)
ASDOF Ship-Board Ordering System
ITIMP Contract and Obligation Process
IGS
Integrated
Garnishment
System
GEX Map
Interfaces
GTN
Global
Transportation
Network
IUID
Item
Unique
Identifier
MOCAS
Mechanization of
Contract
Administration
Services
SPS
Standard
Procurement
System
DTS
Defense
Travel
System
WAWF
Wide Area
Workflow
-General Electric
-Boeing
-Bank of America
-Federal Express
-Commercial Shippers
-Many others
Industry
DPAS
Defense
Property
Accountability
System
PADDS
Procurement
Automated
Data and Document
System
MCTFS
Marine Corps
Total Force
System
Purchase Card
Powertrack
CCR
Central
Contractor
Registry
BEIS
USAF Security
Assistance Center
IVAN
Intragovernmental
Transactions
BUSOPS
DAASC
Defense Automatic
Addressing System
Center
STANFINS
U. S. Army
Standard
Finance System
EDA
Electronic
Document
Access
DLA
DCMA
GFEBS
= Non-BTA Programs
GEX Core
Services
DEAMS
DAI
Defense
Agencies
Initiative
DIMHRS
SPOT
Synchronized
Pre-deployment
Operational
Tracker
CAMS-ME
Capital Asset
Management
System
Military
Equipment
= HR = Sourcing = Finance
Figure A- 1 – Representation of GEX Users
Acquisition Laptop w/o Phase I Phase II Phase III Phase IV
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Tool Comms Comms Deployment Build-up Sustainment Drawdown
GEX Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for GEX:
Pilot Testing:
Limited Deployment
Full Deployment
D. Funding Requirements:
Funding requirements for GEX have been identified as follows:
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
RDT&E
O&M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix B Requirements Generator
A. Requirement:
The effectiveness of the contracting process is measured by how well the contract satisfies the need
of the customer regardless of the environment. In any environment the ability to generate accurate,
current, and complete requirement descriptions is critical to this success. In a contingency
operations environment, with the increase in urgency of the mission and dangers associated with the
environment, a well defined requirement is even more critical, but frequently elusive. The
Warfighter needs a simple means to identify the requirements for supplies and services, where,
when, and in the quantities needed. They do not have the time to wait for subject matter experts to
help review and define the requirement, prepare needed documentation, and obtain approvals.
Today there are few tools available that assist the Warfighter in accurately articulating their needs.
B. Interim Solution - Contingency Acquisition Support Model (cASM):
The Contingency Acquisition Support Model (cASM) is an easy-to-use, web-based tool that helps
users get their requirements on contract more efficiently. cASM is based on an existing application
used for requirements generation at Hill Air Force Base. The contingency Acquisition Support
Module (cASM) will provide support to requirements generators in contingency operations, which
could be used to fill or bridge the gap that the Gansler Commission identified as critical to
improving contingency contracting. It provides a tool to assist in translating a combatant
commander’s requirement into a procurement package that includes all the required documents and
approvals, a responsive contract statement of work, and any ancillary data or information for
acquisition approval and contract action. cASM will assist by simplifying the process for the
Warfighters, providing templates, populating data, and providing the contracting office with an
approved procurement package that the contracting officer can act upon expeditiously.
cASM is a web-based application that uses information collected through a questionnaire to
automatically generate an initial draft of requirements documents. The draft documents are fully
editable in both the basic text area as well as in the data fields that were automatically completed
using the questionnaire data. If the data in any field filled from the questionnaire is modified while
editing a document, the updated information is automatically propagated throughout all the
documents containing the same information upon check in. Each time a document is modified and
stored, it is tracked by a version control feature that not only tracks the document version number,
but who made which changes in each version. Any previous version of the document can easily be
retrieved at any time to track the date and origin of any document changes. cASM:
Enables data entry once and multiple use of the data
Lists all the documents required and the sequence, based on the acquisition type
Provides the latest version of each document format
The formats and templates are stored in the central repository and are easily updated
Utilizes minimal bandwidth requirements
Automatically generates the initial draft of each document
Integrated Product Team (IPT) members enter the data once via a questionnaire – the
system uses this data many times to generate the documents
Data can be input or edited either through the questionnaire or the document itself
Data edits are propagated where used throughout the acquisition documents and database
Contingency Business Environment CONOPS DPAP December 20, 2010
2
cASM is a data-driven system that will utilize and output data in conformance with the DoD
Procurement Data Standard (PDS).
There currently are no electronic interfaces for cASM and financial systems, requiring manual entry
for financial data. Ultimately a data table could be set up to feed the financial data into cASM via
EDA. This will require a translator for cASM. From preliminary research conducted in support of
the contingency operations community and previous experience with other DoD systems,
attempting to develop an interface from or to cASM would risk sub-optimizing cASM performance
as well as those systems to which cASM would connect. Translators between systems are seen as
the most optimal performance option.
The chart below shows that cASM can operate independently on a laptop with little or no
communications connectivity to the Web or the main JCAMS server. It also shows the planned use
and deployment of cASM as a requirements generator in the four phases of a contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
cASM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for cASM:
Pilot Testing: 4th QTR FY09
Limited Deployment 1st QTR FY10
Full Deployment 3rd QTR FY10
D. Funding Requirements:
Funding requirements for cASM have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$8.800 M $9.500M
$9.700M $9.950M $10.300M $12.900M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix C Purchase Cards & Convenience Checks
A. Requirement:
Warfighters need a quick, simple process for purchasing mission critical supplies and services in a
contingency. Depending on the operational environment, the GCPC can be a key component in the
acquisition toolkit by providing a simplified procurement process for purchases that are less than or
equal to the micro-purchase threshold. (The GCPC is mandatory for these purchases.) Proper use
of the GCPC eliminates procurement lead-time and results in substantial transaction cost savings.
The GCPC also automates the invoice and certification process, which facilitates timely payments
and reduces errors associated with manual entry.
B. Solution - Government Commercial Purchase Card (GCPC) & Convenience Checks:
The Government-wide Commercial Purchase Card Program (GCPC) enables properly authorized
government personnel to buy and pay for supplies and services in support of official government
business. The GCPC is similar in nature to a commercial credit charge card; however, it is a
procurement method for official Government use only by authorized Agency personnel to purchase
supplies and services in support of mission requirements.
Issuance of the GCPC requires web connectivity, after which use of the GCPC in the four phases of
a contingency operation is dependent on web connectivity and acceptance by merchants in the area
of operation. However, as an alternative when connectivity is unavailable, convenience checks may
be used as a substitute. The chart below shows that the GCPC requires Web connectivity, but
convenience checks may be used in environments without connectivity.
Acquisition Tool
Comms
Laptop
w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
GCPC Yes N/A Yes Yes Yes Yes
Convenience Check N/A No No No No No
C. Development Milestones:
Development & Deployment Milestones:
Fully deployed
E. Funding Requirements:
FY11 FY12 FY13 FY14 FY15 FY16
$2.500 M $3.510M
$2.220M $2.260M $2.290M $2.400M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix D Field Ordering and Payment Tool
A. Requirement:
In April 2008, Task Force 849 Team 6, formed in response to the Gansler Report, identified a need
to better control cash on the battlefield and bring a much-needed automated solution to the manual
field ordering process that dates back to 1955. Additionally, the then commander of the Joint
Contracting Command – Iraq/Afghanistan identified a need to have a contingency-wide visibility
into purchases made using SF44s because there is no command-wide visibility, data reporting, or
analysis capabilities for these purchases.
The requirement is for a technology-based solution to record and transfer data used by the Defense
agencies when conducting on-the-spot, over-the-counter, field purchases of supplies and non-
personal services (cash and carry type purchases) in circumstances where use of the GCPC would
generally be appropriate, but is not feasible. Typically, this is expected in a contingency
environment.
Today these purchases are made by Field Ordering Officers (FOOs) using a process that is primarily
manual and may require the FOO and Paying Agent (PA) to be exposed unnecessarily to hostile or
dangerous conditions.
B. Interim Solution – 3in1 (Ordering, Receiving, and Paying) Tool:
A multi-service/agency IPT was formed to investigate the best solution and establish the primary
requirements to address these needs. The purpose of the 3in1 Tool is to apply easy-to-use
technology to record and transfer purchase data used by DoD agencies when conducting field
purchases of supplies and services where use of the Government purchase card is appropriate, but
not feasible.
The 3in1 Tool is technology-based solution to record and transfer purchase data associated with on-
the-spot, over-the-counter, field purchases of supplies and services. Using the new 3in1 Tool, the
FOO will input the necessary data into the 3in1 handheld device and the 3in1 handheld device will
transmit this data to JCAMS. That data will populate the FOO’s Purchase Log in JCAMS.
Necessary review and reconciliation of purchase data by all parties other than the FOO will occur on
a monthly basis through controlled access to JCAMS by appropriate contingency contracting
officers serving in the role as the FOO program managers.
The solution consists of a small lightweight device, the 3in1 Tool that will capture and record
necessary purchase, disbursement, and receiving information, including the user's receipt of goods,
vendor payment, and vendor acknowledgement of payment. The device will automatically transfer
that data to the Expenditure/Purchase Log in JCMAS.
The device will capture purchase, invoice, receiving, and payment information, which will …
Reduce FOO and PA time ?outside the wire? and minimize exposure in the
marketplace.
o The tool will include a simplified ordering system that allows preparation of the
order in advance, pre-populating orders from a shopping list, and the capability
Contingency Business Environment CONOPS DPAP December 20, 2010
2
to re-run an existing order. When the FOO gets to the merchant, quantity and
price on the items may be quickly adjusted if necessary, and the order is then be
completed.
Reduce FOO and PA exposure to travel in hostile areas by reducing trips to various
offices by electronically sharing purchase information for review and clearance by the
Property Book Office, Contracting, Disbursing, and Resource Manager
Reduce errors and increase accountability with electronic record-keeping and
reconciliation,
Provide Commanders bottom-to-top visibility of purchases and near real-time
accountability of expenditures with data mining/report generation capability.
The 3in1 Tool facilitates recording purchases and payments both online and offline. In the off-line
mode, transactions are stored into memory on the device and uploaded to JCCS whenever
commercial wireless telecommunications become available.
In the online mode, purchases are immediately encrypted and transmitted from the 3in1 handheld
device to JCCS via an available commercial wireless telecommunications system.
An alternate configuration for use in austere environments with no wireless or LAN connectivity
will provide the capability to securely transfer data from the 3in1 handheld device via USB port to
an independent personal computer application of JCCS.
Initial provisioning of the 3in1Tools will accomplished in JCCS. Organizations, personnel, and
procurement controls will be established and the assigned FOO and PA will be linked to the device
via JCCS. Each FOO/PA team will be assigned to a specific 3in1 device with exclusive utilization.
Digital Signatures will be used to execute and secure order and payment transactions. Receipt of
goods and vendor payment will be recorded as a digital image of their physical signature on the
device’s screen. Vendor receipts will be recorded via a digital image. As each step of the purchase
transaction is completed the information is locked and all purchase order data and images will be
linked and transmitted to JCCS for review/ reporting/ storage.
Features of the device:
? Maintain a running account of obligations, and remaining funds for each line of accounting
loaded into the device.
? Track and calculate purchases in local currency based on the appropriate exchange rate.
? Provide market research capability by querying prior purchases
? Minimize data entry with prefilled data fields
? Record vendor location by GPS coordinates (as appropriate)
? All wireless communications functions may be disabled when required
? Warning messages will notify the FOO when a purchase control is being violated. The device
will restrict purchases beyond authorized thresholds.
Necessary review and reconciliation of purchase data by the contracting office, disbursing agent,
resource manager and property book office will occur through controlled role-based access to JCCS
and transmitted back to the device when completed.
Contingency Business Environment CONOPS DPAP December 20, 2010
3
Purchase data will be reorganized into reports for use by the FOO, FOO Managers, Paying Agents,
contracting offices, disbursement offices, and commanders.
In the online mode, purchases performed in the field are immediately encrypted and transmitted
from the FOO’s 3in1 handheld device to JCAMS via an available commercial wireless
telecommunications system. The chart below shows that the 3in1 Tool is designed to operate in all
four phases on a contingency operation and in environments with or without Web connectivity.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
3in1 Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the 3in1 Tool:
Pilot Testing: 1
st
QTR FY10
Limited Deployment 1
st
QTR FY11
Full Deployment 2
nd
QTR FY11
D. Funding Requirements:
Funding requirements for the 3in1 Tool have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$4.619 K $3.644M $2.060M $2.060M $2.060M $2.060M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix E Tracking and Reporting Cross- Servicing
Agreements
A. Requirement:
Acquisition Cross-Servicing Agreements (ACSA) are bilateral agreements for the reimbursable
mutual exchange of Logistics Support, Supplies, and Services (LSSS) during exercises, training, or
emergency situations. ACSA establishes reciprocal pricing principles for LSSS acquired from or
transferred to governments of eligible countries. Often this type of transaction results in the return
of the same or similar items and may result in no actual currency transaction taking place. The
support for this type of transaction greatly enhances our relationships and ability to collaborate with
other governments during operations.
ACSA reports are labor intensive with no assurance that all of the data is reported is accurate or
timely. The increased use of ACSA programs to support interoperability with coalition forces during
combat and other military operations, coupled with increased report and auditing requirements,
drive the requirement to leverage automation to enhance both the execution of the program and
ability to oversee its internal process
B. Interim Solution - ACSA Global Automated Tracking and Reporting System (AGATRS):
The ACSA Global Automated Tracking and Reporting System (AGATRS) was developed to
eliminate a paper-based process, without a central repository, for tracking ACSA agreements and
transactions. AGATRS is an orders tracking system capable of tracking ACSA transactions where
the United States is either selling or buying goods. In addition, to the tracking of goods bought or
sold, AGATRS, also tracks the bartering and lending of goods and products with other
governments. The purpose of the AGATRS application is to provide a worldwide, automated
solution supporting the Joint Staff J4, Combatant Commands (COCOMs), the Office of the
Secretary of Defense (OSD), and the Defense Finance Accounting Service (DFAS) to manage
cradle-to-grave tracking of ACSA, Implementing Arrangements (IAs), and the subsequent ACSA
orders for LSSS that are executed under these agreements. ACSA managers validate the data in
AGATRS.
AGATRS gives logisiticians, financial personnel and senior leadership a tool for worldwide ACSA
order visibility. It is not an accounting system but may be used to supplement information required
by or available in record accounting and billing systems thus relating relevant information of the
entire ACSA community
The chart below shows that the AGATRS application can operate in environments with or without
connectivity and may be deployed to support AGATRS in all four phases of a contingency
operation.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
AGATRS
Yes Yes Yes Yes Yes Yes
C. Development Milestones:
Contingency Business Environment CONOPS DPAP December 20, 2010
2
AGATRS is fully integrated as a module in JCCS. It is deployed in CENTCOM and SOCOM and is
available to all COCOMs.
D. Funding Requirements:
Funding requirements for AGATRS have been identified as follows:
N/A (this development is complete)
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix F Supplier Relationship Management (SRM)
A. Requirement:
COMISAF’s 8 September 2010 Counterinsurgency (COIN) Contracting Guidance emphasizes that
purchases made for construction, goods, and services can bolster economic growth, stability, and
goodwill in the Area of Operation. Contracts with local firms that procure local goods and services
generate employment and assist in the development of a sustainable economy. However, contracting
the wrong vendors can unintentionally fuel corruption, finance insurgent organizations, strengthen
criminal patronage networks, and undermine our efforts.
COMISAF’s COIN Contracting Guidance identifies the critical importance of supplier relationship
management and the need to establish systems and standard databases for vetting vendors and
contractors to ensure that contracting does not empower the wrong people or allow the diversion of
funds. We need to know those with whom we are contracting and build relationships with local
businesses and community leaders.
B. Interim Solution - Joint Contingency Contracting System (JCCS):
JCCS is a robust client tool designed to capture and manage contingency contract data to meet three
fundamental SRM objectives:
? support government spend analysis in order to increase the number of opportunities available
and awarded to host-nation vendors;
? provide data that would support a host-nation specific supplier relationship process to
increase host-nation vendor utilization;
? create an ability to provide functionality to help the first two objectives quickly influence
economic conditions in support of the campaign plan.
JCCS provides a bilingual web-based online registry for host-nation vendors, a solicitation posting/
proposal receipt system, and an enterprise process and technology capability to provide leadership
with structured real-time reporting of key contract data. Along with posting contract opportunities
in English (full solicitation) and Arabic (summarized version), and providing information about all
the registered and approved host nation vendors, the JCCS captures vendor proposals, and
documents contract awards. Once an award is made, specific data associated with the contract award
is entered into JCCS, which then provides the key to the information visibility needs of the
command via structured and highly robust web-based reports, and the information is accessible to
geographically dispersed contracting officers. The system provides visibility to receipt of goods,
payment to vendors, and ultimately the close-out of the contract, completing the business process.
The Commander, CENTCOM Contracting Command has identified a critical need for tracking and
reporting information on contractor performance within the AOR. Currently, the Contractor
Performance Assessment Reporting System (CPARS) provides access to a database of contractor
performance assessment reviews (CPAR) that are performed . A CPAR assesses a contractor's
performance and provides a record, both positive and negative, on a given contractor during a
specific period of time. Each assessment is based on objective facts and supported by program and
contract management data, such as cost performance reports, customer comments, quality reviews,
technical interchange meetings, financial solvency assessments, construction/production
Contingency Business Environment CONOPS DPAP December 20, 2010
2
management reviews, contractor operations reviews, functional performance evaluations, and earned
contract incentives.
The JCCS contains a performance information tool that could, if expanded, meet the needs
identified by the CENTCOM Contracting Command. The current functionality contains a 3 point
rating system that may easily be expanded to 5 point system similar to a CPAR rating.
The advantage of this approach is that the JCCS performance information tool is easy to use and
would encourage capturing past performance data with almost no administrative burden. This
capability could quickly be fully functional and usable.
An alternate approach would be to develop and implement into JCCS a contingency application of
the CPARS. CPARS is the DoD system for collecting of contractor Past Performance Information
through a web-enabled application that collects and manages a library of automated contractor
report cards. A report card assesses a contractor’s performance and provides a record on a given
contract for a specific period of time. The advantage of using CPARS is the system promotes report
card consistency, increases data integrity, and motivates improved contractor performance.
CPARS employs an electronic workflow allowing Contracting Officers, Program Managers,
Contracting Officer’s Representatives, Engineers, Integrated Product Teams, and others to evaluate
and rate a contractor’s performance on a given contract for a specified period of time. CPARS also
allows contractors to electronically submit comments regarding the Government’s assessment and
to indicate concurrence or non-concurrence with the overall evaluation. The CPARS process
includes an electronic ?check-and-balance? whereby a senior official reviews each Government-
Contractor disagreement to ensure that the report reflects a fair evaluation.
Currently these two alternatives are being examined to meet the need for past performance
information in contingencies. The chart below shows that this new capability should be able to
support all aspects of a contingency.
JCCS has matured and is available across the phases and full spectrum of contingency operations
environments and can operate during a contingency with limited infrastructure and austere
communications, with its on-line and off-line capabilities for data insertion. The system provides
data for a variety of management processes to include review of vendor past performance, allowing
the posting of host-nation reconstruction solicitations, providing a location for vendors to submit
proposals, tracking historical reconstruction contract data, and allowing oversight of in-theatre
contracts to monitor cost, schedule, performance, and vendor activities. The capabilities may assist
in meeting COMISAF’s 8 September 2010 COIN Guidance to establish systems and standard
databases for vetting vendors and contractors to ensure that contracting does not empower the
wrong people or allow the diversion of funds. The SRM capabilities of JCCS support efforts to
build relationships with local businesses and contract with responsible local firms in a contingency.
In support of SRM, the application facilitates:–
? Publishing contracting opportunities and a means for replying with proposals and responses to
request for quotes electronically;
? Host Nation businesses gaining visibility into local contracting opportunities
? Capturing critical contingency acquisition and vendor data with emphasis on Host Nation
spending
? Visibility into a vetted database of host nation and foreign vendors
Contingency Business Environment CONOPS DPAP December 20, 2010
3
? Approving local suppliers;
? Multi-Language vendor registration and solicitation posting, allowing for proposal submission
from a greater pool of vendors, thereby increasing competition for contracts
JCCS was rapidly adopted by the in-theater contracting and vendor communities and has become a
significant success story for in-theater reconstruction in promoting stability and reform through
economic recovery in a contingency. The customer gained accurate and timely visibility into Host
Nation vendors’ contract activity. JCCS had dramatic growth in its usage in the relatively short-time
since it was first deployed.
The chart below shows that the SRM application of JCCS can operate in environments with or
without connectivity and may be deployed to support SRM in all four phases of a contingency
operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCCS-SRM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
SRM is fully integrated as a module in JCCS. It is deployed in CENTCOM and is available to all
COCOMs.
D. Funding Requirements:
Funding requirements for developing CPPS have been estimated as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$500K $500K 0 0 0 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix G Contract Writing System
A. Requirement:
Contracting officers need a contract writing system while operating in a contingency, regardless of
how austere the environment may be. The system must be able to support the unique legal,
regulatory, and business requirements of Federal and Defense procurement. The system must be
capable of generating appropriate terms and conditions, CLIN and sub-CLIN structures, generating
procurement documents, contract administration including ordering, and standard/optional forms
data capture and generation. The system must also include milestones and workload
assignment/management and procurement data reporting.
B. Interim Solution - the Standard Procurement System (SPS):
The current DoD contract writing system is the Standard Procurement System (SPS). The core
product being deployed by the SPS program in the current AOR is a client-server application known
as Procurement Desktop Defense or ?PD2?, which is a robust contract writing tool. SPS is being
adapted through a translator application to link to logistics and financial systems to enable accurate
tracking and reporting of financial data through the budgeting, requisition, contracting, contract
administration, payment and contract close-out processes. SPS uses SSH Tectia software to encrypt
data between SPS components to reduce the vulnerability of the system
SPS-C provides the same functions as a garrison based SPS instance. In the SPS-C set-up, the client
application and PD2 database are loaded on a single laptop or desktop and contracting can be
performed in a contingency environment in extremely austere environments where network
connectivity is unreliable or nonexistent. Currently SPS has been deployed to JTSCC, and in other
contingency locations. It has been successfully deployed in SOUTHCOM in a scaled down
laptop/local server configuration using CITRIX and is considered a prototype for deploying SPS
into austere environments.
In JTSCC, Regional Contracting Centers (RCCs) are configured with a single SPS-C installation and
a small number of PD2 client machines connecting to it. Each instance of SPS-C has the SPS
Synchronization Utility loaded. The Synchronization Utility allows for synchronization of off-line
created content. The next generation of contract writing capabilities must be able to work in an
contingency environment and support normal acquisition operations at the post, camp and station
level. The tool must be able to work with or without network connectivity--caching secure
transactions locally until a network connection can be made. Synchronization of off-line content
must be automatic and intelligent. Additionally, the next generation of contract capabilities must be
able to easily adapt contingency local business processes.
Business rules, to include FAR, DFAR and service/region/campaign specific DFAR updates must
be embedded in the tool so that contingency contracting officers can focus on fulfilling Warfighter
requirements and not on administrative system updates. The rules should be applied in response to
the CCOs responses to questions – driving the system towards the desired result without having to
direct every aspect of the solicitation or contract creation (similar to popular tax preparation
software). This new system should also be easy to administer locally or remotely; thereby reducing
the need for embedded system support.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
The tool should also assist the CCO and ACO by proactively managing the contract – watching for
key contract dates, payments, invoices, etc. This will reduce the administrative burden of managing
and closing a contract.
The next generation contracting writing system will conform to the Procurement Data Standard
(PDS) to provide the data flow through the systems that support the end-to-end business process.
The chart below shows that this new tool should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
SPS-C Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for SPS-C:
SPS is fully deployed to 22,000 users
SPS-C is deployed in JTSCC
D. Funding Requirements:
Funding requirements for SPS-C have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$21.095M $17.968M
$18.522M $19.178M $19.877M 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix H Electronic Access to Business Documents
A. Requirement:
The data used by the systems and applications in this CONOPS will require transmission to, storage
in, and retrieval from a standard data warehouse that provides systems and authorized users with
secure online access to contracts, contract modifications, and related documents.
B. Interim Solution - Electronic Document Access (EDA):
EDA is a web-accessible system that provides secure online access, storage, and retrieval of standard
procurement data that generates contracts, contract modifications, Government Bills of Lading
(GBLs), Defense Finance and Accounting System (DFAS) Transactions for Others (E110),
vouchers, and Contract Deficiency Reports to authorized users throughout DoD. EDA is designed
to simplify and standardize the methods used to interact with suppliers through the application of
Electronic Business/Electronic Commerce (EB/EC) across the DoD. EDA provides the ability to
post, view and process documents electronically, eliminating the need for paper copies for payment
technicians at DFAS, DoD contracting officers, procurement officers, program and financial
managers, and transportation officers. The benefits derived from EDA include:
? A single-source for timely, accurate information
? Electronic search and retrieval - 24/7 access/retrieval capability
? Increased visibility of all procurement & payment actions
? Reduction in data entry/human error
? Lower postage, handling, retention and document management costs
? Single Integrated solution to support multiple communities
EDA is the backbone for the flow of procurement data and must have connectivity to operate.
Successful deployment of EDA in the earliest phases of an operation will be dependent on
bandwidth and connectivity.
The chart below shows that EDA should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
EDA Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for EDA:
D. Funding Requirements:
Funding requirements for EDA have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$7.435 0
0 0 0 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix I Electronic Receipt and Acceptance
A. Requirement:
In the traditional DoD business method, three documents are required to make a payment: the
contract, the receiving report, and the invoice. In a manual paper environment, each of these
documents may arrive at the payment office and be processed separately. Information is then
manually keyed into the payment system. The business process requires that these documents be
entered electronically once and that the data be shared across business systems, eliminating
redundant data entry. This would increase data accuracy and reduce the risk of losing a document.
B. Interim Solution - Wide Area Workflow (WAWF):
Wide Area Work Flow (WAWF) is a DoD-wide application designed to eliminate paper from the
receipts and acceptance process of the DoD contracting lifecycle. The goal of WAWF is to provide
authorized Defense contractors and DoD personnel the ability to electronically create invoices and
receiving reports and access contract related documents. The contract data is available through a
seamless interface with EDA. Contractors have electronic options for submitting invoices and
receiving documents. They can submit documents on the Web, through FTP, or through EDI.
WAWF can also process miscellaneous payments and property transfers.
WAWF supports DoD's efforts to reduce unmatched disbursements in the DoD receipt,
acceptance, entitlement and payment process through data sharing and electronic processing. The
benefits to DoD are global accessibility of documents, reduced need for re-keying, improved data
accuracy, real-time processing, and secure transactions with audit capability. For vendors, benefits
include the capability to electronically submit invoices, reduction of lost or misplaced documents,
and online access to contract payment records.
The Quick Compliance Tool Suite (QCTS) is a Web-based tool that simplifies and expedites legacy
Individual Unique Identification (IUID) markings. The process framework combines QCTS tools
with management functions, enabling organizations to administer IUID marking projects efficiently.
Management functions include a manager overview (dashboard) on which QCTS enables site
managers to see all marking effort progress at their site including marking tasks, label quantities and
status, and the progress of individual marking personnel. The command level marking progress
overview (Dashboard) monitors legacy IUID marking over an entire organization or command. The
progress each unit has made in their individual marking effort is clearly visible and metrics are easily
downloadable. Managers can drill down to any unit below in the command structure Organizations
are stored as a customizable organization chart. Metrics can be pulled from any level in the chart.
Individual units may also be viewed and reported on, providing any level of detail desired.
Marking task management allows a large marking effort to be split into manageable chunks which it
can automatically assign to marking personnel. QCTS also includes a Wizard Interface for managers
to ease use and reduce the need for extensive training. Introducing legacy inventory to be marked
into QCTS is performed as a simple Excel file upload so existing inventory systems do not need to
permit QCTS to connect to them.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
QCTS enforces IUID standards while reading 54 different formats. QCTS includes a series of tools
designed to address unique needs. These include:
? UII registry lookup
? QCTS checks the IUID registry to determine if an item has been registered or not. If
an item has been registered, the user is notified. Duplicate registrations are
prevented.
? IUID data extraction
? QCTS parses scanned IUID labels and extracts the information in them.
? IUID image data extraction
? QCTS can parse and extract IUID information from uploaded photographs and
scanned images of IUID labels.
? IUID raw data string compliance validation
? All IUID labels that are parsed are subjected to numerous validation checks to
ensure they comply with the IUID specification.
? UII compliance validation
? All UIIs (as opposed to raw IUID data extracted from marks) are also checked to
ensure they comply with the IUID specification.
? IUID mark generation
? QCTS is capable of generating IUID marks as downloadable images.
? Item registration
? QCTS is capable of registering items with the IUID registry once they have been
marked.
? IUID Registry XML file validation
? QCTS is capable of validating the format and contents of uploaded XML IUID
Registry files. These files contain information about IUID-enabled items that should
be registered.
The vision for this contingency environment includes developing a laptop function to process
receipts and receiving reports off-line. WAWF is a web-based application; the chart below shows
that WAWF must have connectivity to operate. The infrastructure for vendors to use WAWF will
probably not be available in the earliest phases of a deployment.
The chart below shows that WAWF/QCTS should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
WAWF Yes No No Yes Yes Yes
QCTS Yes No Yes Yes Yes Yes
Contingency Business Environment CONOPS DPAP December 20, 2010
3
C. Development Milestones:
The following are the major development & deployment milestones for WAWF::
WAWF is deployed in JTSCC. Vendor enrollment training is being conducted to increase
utilization.
QCTS is deployed in NAVAIR
D. Funding Requirements:
Funding requirements for WAWF/QCTS have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$3.800M $2.800M $2.900M $2.900M $2.980M $3.030M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix J Contingency Distribution System
A. Requirement:
The warfighter requires a standalone distribution system that can be placed at the center of the
action, on carriers, and smaller Defense Logistics Agency (DLA) warehouse locations without the
constraints of requiring constant mainframe connectivity. A rapid mobile distribution warehouse
solution is also required in the case of national emergencies such as supporting victims of a natural
disaster.
DLA maintains the Distribution Standard System (DSS), which supports mission requirements for
receiving, storing, and distribution of supply items to the Warfighter in the field for US military
forces. This legacy system operates on an IBM z/OS mainframe with a DB2 database and CICS.
The requirement for contingencies is a web-accessible, portable, stand-alone version of DSS on a
platform that could be shipped to remote locations where constant connectivity to the mainframe is
not possible. The contingency application must replicate the DSS system, with 100% functionality
intact, with the ability to execute on IBM’s AIX operating system. The contingency copy of DSS
would need to execute the COBOL code generated from the mainframe APS code, which will
remain as the primary production environment.
B. Interim Solution – Deployable Distribution Standard System (DDSS):
DLA completed a successful Proof of Concept for the Deployable DSS in October 2006 and the
functionality was successfully tested using live production data with the Deployable DSS in April of
2007 as part of the Node Management and Deployable Depot Advanced Concept Technology
Demonstration Limited User Exercise at Osan, Korea. It exercised the use of Deployable DSS in
support of a Theater Consolidation and Shipping Point.
DDXX Joint Military Utility Assessment (JMUA) was completed in Okinawa, Japan in April 2008.
It exercised the full capabilities of Deployable DSS and DDXX. The JMUA consisted of inbound air
pallet and sea container sustainment cargo diversions to the TCSP and 400+ National Stock
Number (NSN) lines of inventory placed in the Forward Deployed Warehouse (FDW) to fill
requisitions routed from Okinawa-based Army, Navy, Air Force, and Marine Corps units. This
exercise was a complete success. During the course of the exercise, several additional studies were
produced expanding on the DDXX demonstrated capability. The DLA Office of Operations
Research and Resource Analysis (DORRA) published a Business Case Analysis (BCA) for a FDW
based on the Okinawa, Japan JMUA venue and subsequent establishment of a permanent Okinawa
distribution center. The BCA concluded potential for nearly $4M cost savings over 5 years, a
reduction in military airlift requirements for DLA managed items of approximately 53% (assuming
inventory movement by surface), and average CWT improvement from 19.8 days to 10.8 days for
Okinawa-based units. DORRA also initiated a modeling and simulation effort with results
emphasizing the critical importance of early DDXX deployment to a contingency versus delayed
arrival and subsequent lengthy recovery times.
The Defense Distribution Expeditionary Depot (formerly DDXX) was deployed to Rockhampton,
Australia in support of the Talisman Saber ’09. Talisman Saber is a joint military exercise held in
Shoalwater Bay military training area and includes American and Australian Armed Forces. DDED
provided a Forward Deployed Warehouse (FDW) to fill requisitions from Marine, Air Force, and
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Navy forces participating in the exercise. DDED provided meals ready-to-eat (MRE’s) and other
miscellaneous items for over 10,000 troops thru the duration of the exercise. The deployment of
DDED to support the military exercise was a complete success. Throughout the exercise, timelines,
documentation, and checklists were generated and refined to aide in DDED future deployments.
DDED analysts also utilized the exercise to train DDED personnel on the Humanitarian Aid
Visibility (HAV) module for DSS. The HAV module will be used to support disaster relief efforts in
CONUS and OCONUS deployments. It will improve truck processing times by almost 80% and
provide visibility to inventory for disaster relief support.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
DDSS Yes No Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for DDSS:
October 2006 - Deployable DSS Proof of Concept
April 2007 - NoMaDD ACTD LUE – Osan, Korea
March 2008 – Joint Military User Acceptance – Okinawa, Japan
July 2009 – Talisman Saber Exercise - Rock Hampton, Australia
D. Funding Requirements:
Funding requirements for DDSS have been identified as follows:
(Note: These figures reflect C2 and IT costs associated with supporting four DDSS systems or
capabilities deployed simultaneously – each system includes DSS Mid Tier Server, SATCOM ,
Wireless Technology, and unique distribution/logistics-related IT equipment. It does not include
SATCOM service fees, labor costs (approx. $1M/yr) or non-IT costs (shelters, vehicles, etc.).
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
Procurement
$1.0M
3
rd
Sys
$1.0M
4
th
Sys
$0
$1.0M
Upgrade 1
st
Sys
$1.0M
Upgrade 2
nd
Sys
$1.0M
Upgrade 3
rd
Sys
O&M (non labor) $800K $800K $800K $800K $800K $800K
Contingency Business Environment CONOPS DPAP December 20, 2010
3
Appendix K Oversight of Contractor Stewardship of
Government-Furnished Property
A. Requirement:
Government Furnished Property (GFP) must be reconciled on any Department of Defense (DoD)
contract, including contingency contracts. To accomplish this, it is necessary to capture data on
government equipment and supplies as they are sent to the contractor and allow creation of
summary reports of current GFP on hand.
Although contract property policy and oversight has been the target of significant reform over the
past ten years, there is still room for improvement. To reinforce internal controls over the
accountability for GFP provided to a contractor by a DoD Component, or requisitioned from DoD
Component supply sources by a contractor, the following requirements must be achieved:
All transactions used to transfer property to contractor custody or return property to DoD
custody shall cite a contract number under which the property is or was accountable for
stewardship.
Contractors and the DoD components shall confirm receipt by contract number for property
received.
For contractor requisitions of GFP, the DoD Components shall capture or link to the contract
number under which requisition authority to contractors is granted, and shall reject any
contractor requisitions that are not authorized.
Consistent with FAR 45.201, GFP requirements shall be fully described and listed in an
Attachment in any solicitation and contract to notify the contractor of those items of GFP that
are due-in from the DoD or that are authorized for requisition from a DoD Component supply
source.
GFP transfer transactions and receipts shall be routed to a GFP Hub in the DoD IUID
Registry.
A. Interim Solution DoD IUID Registry and GFP Hub:
The overarching requirements for Government-Furnished Property (GFP) oversight are contained
in DoD Instruction 8320.04, Item Unique Identification (IUID) Standards for Tangible Personal
Property, dated June 16, 2008, which:
(a) establishes the DoD Item Unique Identification (IUID) Registry as the master data
source for GFP and
(b) requires the DoD Components to identify and track GFP through the use of UIIs in
transaction-derived data from electronic business transactions.
For those items that require a Unique Item Identifier (UII), this function is performed by the IUID
Registry. To fully account for all GFP in the possession of contractors, a similar capability is
Contingency Business Environment CONOPS DPAP December 20, 2010
4
required for GFP that does not require or yet have a UII assigned. This category of GFP is referred
to in this document as non-UII’ed GFP items.
An adjunct capability to the DoD IUID Registry, the GFP Hub, has been implemented for tracking
non-UII’ed GFP items, which are commonly managed by their National Stock Number (NSN); this
will meet the needs of the DoD IUID Instruction. Insofar as all such non-UII’ed GFP items come
to a contractor via a shipment notice (either from WAWF or a DoD supply or property system), it is
possible to feed the transactions to the DoD IUID Registry so that contractors could ensure the
material is properly aligned with the custodial contract. Thus, a single paperless view will be created
showing the UII’ed GFP and non-UII’ed GFP.
As depicted in Figure R-1, non-UII’ed NSN transactions can be intercepted via a data feed from the
Defense Automatic Addressing Systems Center (DAASC) from the DoDAAC that receives the
property via the X12 527R, Document Identifier DRA; Materiel Receipt Acknowledgement. This
data feed would provide information on the 527R transaction for non-UII’ed GFP to the DoD
IUID Registry.
Figure R-1- Overall Concept and Data Exchanges for GFP Transfers
The chart below shows that the DoD IUID Registry and GFP Hub is useful with or without
connectivity, as GFP reconciliation reports may be completed after the contracting officer has
returned from deployment and connectivity is available. GFP reconciliation by contract number will
provide information to contracting officers that are about to be deployed, and to management,
trainers, and planners in all phases of an operation.
Contingency Business Environment CONOPS DPAP December 20, 2010
5
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
IUID Registry Yes No Yes Yes Yes Yes
B. Development Milestones:
Electronic, or paperless, tracking of non-UII’ed GFP as an adjunct DoD IUID Registry capability
will be accomplished in three phases, described as follows:
Phase 1 will be the baseline system for paperless accountability by contract number for non-
UII’ed GFP items that are requisitioned by a contractor using MILSTRIP requisitions sent
through the Defense Automatic Addressing System Center (DAASC). Completed.
Phase 2 will augment the baseline system by retrieving transfers of non-UII’ed GFP items
conducted using WAWF Property Transfers. ? QTR FY??
Phase 3 will establish Memoranda of Agreement (MOA) with individual Accountable Property
Systems of Record (APSR) to retrieve receipt transactions on non-UII’ed GFP items authorized
by the contract that were under the accountability of the ASPR when they were shipped to a
contractor. . ? QTR FY??
C. Funding Requirements:
Funding requirements for the DoD IUID Registry and GFP Hub have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$3.431M $6.476M $4.798M $4.924M $5.063M $5.207M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix L Management of Contracting Officer
Representative Resources
A. Requirement:
The COR tool is an application that allows the tracking and management of COR nominees, existing
CORs and COR Contract Management. This tool is currently part of the Virtual Contracting
Enterprise (VCE) suite being deployed in the Army, but is in the development stages to be
implemented into the DoD community. Initially, it will be accessed through the Electronic Data
Access (EDA) portal. In the CBE CONOPS it will be accessed through JCAMS.
With this tool, a Contracting Officer (KO) is able to approve/reject/review documents for any of
their contracts and terminate any appointment of a COR provided they are on the COR list. It also
serves as a document repository for document templates such as Appointment Letters, Revocation
Letters, and Quality Assurance (QA) Surveillance Plans. There is also a portfolio report for each
COR that shows the CORs profile, training (detailed), contracts, and status report information
pertaining to the selected COR.
B. Interim Solution - Contracting Officer Representative (COR) Tool:
There is also a CONOPS in development to address the electronic functions that CORs perform
and how these functions tie into the three different levels of CORs. Ultimately, this tool will provide
the capability for Warfighters, logisticians, contracting officers, managers, and the resource managers
to review the post-award status of procurements through visibility into the reports and actions of
CORs.. For supply contracts, this tool could be used to report delivery and acceptance, and for
services contract this tool could be used to monitor contractor performance.
The chart below shows that the COR Tool can operate independently on a laptop with little or no
communications connectivity to the Web or the main JCCS server. It also shows the planned use
and deployment of the COR Tool for tracking and managing CORs in the four phases of a
contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
cASM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the contingency application
of the COR Tool:
Army Tool is deployed in JTSCC
Initial Joint capability 2
nd
QTR FY10
D. Funding Requirements:
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Funding requirements for the contingency application of the COR Tool has been identified as
follows:
FY11 FY12 FY13 FY14 FY15 FY16
$212K $212K $212K $212K $212K $212K
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix M Oversight and Control of Contractors
A. Requirement:
To address the lack of functional oversight and control of the vast number of contractors who
accompany the U.S. Armed Forces, OSD designated the Synchronized Predeployment and
Operational Tracker (SPOT) as the joint data base for contractor tracking and administrative
accountability in January, 2007. SPOT addresses a concern highlighted in the Gansler Commission
Report when it stated ?Commanders must have timely situational awareness of contracts and
contractor personnel and assets on the battlefield, to properly plan, synchronize operations, and
manage the supply chain.?.
B. Interim Solution - Synchronized Predeployment and Operational Tracker (SPOT):
The SPOT program provides a web-based automated system to track contractor personnel
movements within the forward area and a basis for validating individual contractor personnel
associated with specific contracts, their authorization for access to specific DoD facilities, and their
individual eligibility for specific DoD support services. It also provides for tracking the use of and
accountability for DoD equipment in the custody of contractors. By making available information
on contractor location, training, and capabilities, SPOT improves the ability of the current civilian
and military acquisition workforce to conduct program management activities during combat and
during post-conflict, reconstruction, or other contingency operations
SPOT has proved so successful that the U.S. Congress mandated its use by DoD, DoS, and USAID
for the ongoing operations in Iraq and Afghanistan. Today SPOT is totally integrated into the
operational environment for use as a real-time accountability and visibility system for contractors on
the battlefield, as well as a planning and resourcing tool. See Figure J-1.
SPOT’s vision is to provide authorized users from across the Federal Government with secure
access to historical and near-real-time information that allows insight and the capability to
dynamically effect ongoing operations as well as perform comprehensive analytics of prior activities.
In short, the vision of SPOT is to build upon the established foundation and from that deliver the
right business intelligence information when it is needed, where it is needed. For the Government
user to be successful and make the most efficient use of contractor resources, they must have:
Access to historical and near-real-time contract and contractor status information
Visibility and accountability information for all contractor tasks, Government-furnished
property (GFP) and resources (both available and consumed). System Level Interface
Agreements must enable system to system interface between SPOT and the DoD Item
Unique Identification (IUID) Registry to ensure that GFP issued to contractors and items
received or returned from contractors into the Government inventory are properly
registered in the DoD IUID Registry
1
.
1
The DoD IUID Registry as the master data source for Government Furnished Property (GFP) and therefore must be used to
populate SPOT to ensure accurate and reliable data is entered and that the DOD IUID Registry is updated as a result of the return
of the GFP.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Access to a state-of-the-art business intelligence toolset to facilitate decision making and
contingency planning
Ability to generate pre-deployment, deployment, and re-deployment plans and documents,
to include a digitized Letter of Authorization to provide for physical access to Government
facilities.
Figure N-1. Conceptual View of SPOT in the Future
The next section describes the functions and capabilities that were incorporated over time to achieve this
vision.
SUMMARY OF CURRENT SPOT FUNCTIONS AND PLANNED FUTURE CAPABILITIES
1. The Tool for Identity and Accountability. The Synchronized Predeployment and Operational Tracker is
a web-based application that provides authorized Government and company users a tool to identify
contractor employees deployed to support contingency operations and ensure they are accounted for;
“visible;” and can be appropriately managed. SPOT is the authoritative source for near real-time reporting
on globally deployed individuals, by name, by location, and by contract.
2. Congressional Direction. In accordance with the National Defense Appropriations Act of FY08, Public
Law 110-181, SPOT is the common database that centralizes all contingency contractor records in a secure
data repository for the DoD, Department of State, and U.S. Agency for International Development. SPOT
standardizes the information collected and presented through interface screens based on assigned user
roles. It uniquely relates the deployed individual with their contract; requiring Government agency; and
current location.
3. SPOT Capabilities. The stored information is used to generate reports on the number of contracts and
capabilities provided, the period of performance, the total number of persons deployed on all contracts,
and how many are associated with each contract. At the detailed level, SPOT reports provide by-name
SPOT Information Integration
JAMMS
CCR
CVS
JPAS
Deployment
Contract
Federal
Agency
Contractor
Personnel
who
Places
Movements
Duty Stations
where
Dates
Arrivals
Departures
when
Contractor
Company
POC
Company Info
Contract Officer
Contract POC
Deployment
Contract
Federal
Agency
Contractor
Personnel
who
Places
Movements
Duty Stations
Places
Movements
Duty Stations
where
Dates
Arrivals
Departures
Dates
Arrivals
Departures
when
Contractor
Company
POC
Company Info
POC
Company Info
Contract Officer
Contract POC
Contract Officer
Contract POC
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Planning
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Planning
Currently Integrated
With SPOT
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Development
Integration Under
Planning
Integration Under
Planning
SPOT Information Asset
Contractor
Accountability
Mission
Planning
Logistics
Contractor
Company
Integration
Capabilities
.
.
.
Enablers Technologies Processes Standards Infrastructure People Tools
KBR
DMDC
SPOT Information Integration Platform
Integration
Partner
Systems
Integration
Partner
Systems Information
Sources
FPDS-NG
AKO
Identity
Management
Contractor
Registration
Contract
Information
Logistics
Contractor
Company
Identity
Management
Contractor
Registration
Contract
Information
Logistics
Contractor
Company
Authoritative
Data Sources
Letters of
Authorization
CAC
DBIDS
Biometrics
Documents
Reports
~~
Analytics
Contingency Business Environment CONOPS DPAP December 20, 2010
3
historical and current information, including the contract company and contract number, the requiring
Government organization, the contact information of individual deployees and locations to which they
were assigned and/or tracked. SPOT also allows users to pull geospatial reports that associate deployees
or contract capabilities with precise map locations.
4. SPOT’s Federated Operation. Built on a service-oriented architecture (SOA), SPOT is both a consumer
and provider of web services on contracts and contractors. It retains accurate, up-to-date information via
automated solutions rather than manual re-keying of data already available in digital form. Currently
connected to the Defense Manpower Data Center and several contractor company data repositories, SPOT
will make broader use of shared information by increasing the number of SOA links to authoritative data
sources. For example, SPOT will be able to obtain contract records as they are awarded by connecting to
the Joint Contingency Contractor System.
5. Advanced Technology. SPOT was created with a flexible design and open architecture to easily adapt to
new technology so that it can include the best available means of operation, employ advanced methods of
maintaining data, and increase the use of automated connections. By enabling these features, SPOT will
ensure consistent, secure access and accurate reporting to the growing user population and provide
sophisticated business intelligence for analytical reporting. The future vision for SPOT is to expand the
use of SOA and web-services to link contingency contractor and contract information without manual
operations and continue to incorporate technological advances, using best business practices, and
complying with the NDAA, Clinger-Cohen, Privacy Information and Paperwork Reduction Acts.
6. Document Generation. SPOT uses the data repository of collected information to generate Letters of
Authorization (LOA) digitally signed by the appropriate Government agency’s contracting officer.
Authorized SPOT users can then retrieve and print out the LOAs in PDF format. LOAs are supplied to
contingency contractor deployees to be carried and presented as bona fide credentials for physical access
to Government controlled facilities and for obtaining Government furnished services within the area of
operations to which they are assigned. Within the next five years, the Government will leverage the
information that has been collected and standardized through the use of SPOT to automate and
institutionalize additional processes, e.g. generate contingency contractor documents for pre-deployment
screening and training.
7. Analytical Toolset. Contracts are currently in place for the development of a business intelligence toolset
that will re-purpose SPOT’s repository of information to dramatically increase the capability to generate
advanced analytics and metrics, which will enable DoD to expeditiously analyze historical and existing
contracted support to respond to ongoing events and planning for future U.S. operations.
8. NIPR-SPOT and SIPR-SPOT. FY09 contracts are also in place to establish a SIPRNET version of
SPOT that will allow classified items, such as classified contracts and military unit data, to be added. This
capability will enable SIPRNET users worldwide to access the SPOT database to obtain more detailed
knowledge than is available over the NIPRNET.
9. Future Functionality. Additional SPOT capabilities will provide better tools for planning contingency
operations, such as a means to determine the logistics burden on military units and quantify contracted
requirements for operational support. Improved functionality will allow users to track virtual deployees in
a SPOT training database during exercises; this capability will complement the current ability to track
actual deployees in the production database. In addition, the information available through SPOT will
increase significantly as web-service connections with authoritative databases are added, the number of
Contingency Business Environment CONOPS DPAP December 20, 2010
4
tracking stations is increased, and data collection systems are added to enable collection from even more
tracking stations.
10. Support to Broad User Base. As a result of the Congressional mandate to use SPOT and the extent of
information it stores, several federated communities of interest comprise SPOT users:
Government offices responsible for planning and/or reporting the number of friendly forces, including
contractors, working for the U.S. Government in active operations
Combatant Commanders who are responsible for the accountability of persons in their area of
operations and who must therefore have visibility into contractor operations
Agencies and logisticians that plan and execute operations and associated logistics efforts
Business managers who ensure appropriate funding is available and/or evaluate how funds are being
expended
Contracting Officers monitoring active contracts that include deployment to ongoing operations
Government offices with missions that require deployment of contractors, including access by their
Contracting Officer Representatives
Contractors with Government contracts requiring their personnel to deploy
In the future, additional users will include other federal agencies (e.g., DHS, Labor, Justice, and
Agriculture), first responders, and state-level agencies
11. Planned Enhancements. Currently SPOT allows companies to create deployment and LOA requests;
Government agents to authorize contractor deployments; and Government contracting officers to grant
approval by digitally signing LOAs, either singly or in batches. Planned enhancements include the
automated population of contract header information from Government contracting databases and
automated build of contingency contractor records from company human resource databases. As SPOT is
the only application that aligns a deployed contractor with their specific contract, SPOT will use this
information to build associated documents that will simplify and automate the deployment process beyond
current functionality. In the future, SPOT will generate additional contractor forms, which may include
those used during pre-deployment processing at Government or contractor facilities, e.g., training and
medical checklists, generate requests for appropriate clearances, and produce approved clearances in pdf
format.
12. Data Collection. The SPOT Program will expand use of the Joint Asset Movement Management System
(JAMMS) for location tracking at pre-deployment centers and training sites; for documenting arrivals at
Theater Reception Centers; and for recording redeployment processing. SPOT database movement
tracking capabilities will be extended to incorporate movements collected from the Defense Biometric
Identification System, the Biometric Automated Toolset, and the Handheld Interagency Identity Detection
Equipment, as well as from JAMMS, which will significantly expand the number of access and control
points furnishing contractor location tracking data to SPOT. In addition, automated upload functionality
from these tools will be added to better reflect real-time locations in SPOT-generated reports.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
SPOT Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for SPOT:
Contingency Business Environment CONOPS DPAP December 20, 2010
5
SPOT is fully functional
Will replace manual census in 4th QTR FY10
SIPR version deployed in FY11
D. Funding Requirements:
Funding requirements for SPOT have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$ 28.300M $ 2.400M $ 2.400M $ 2.400M $ 2.400M $ 2.400M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix N Contingency Contracting Tools, Templates
and Training
A. Requirement:
The JCC Handbook is a consolidated source of information in a pocket-sized guide to help CCOs
meet the needs of those whom they are supporting. The Handbook is intended to be used in
conjunction with an enclosed DVD that is also available at the Defense Procurement and
Acquisition Policy (DPAP) Web site. Both the handbook and DVD can be used to train at home
station, and as a source of reference materials and for training while deployed. The handbook and
DVD provide useful tools, templates, checklists, and training exercises which are accessible through
a standard table of contents, links embedded in the text, as well as a Topical Index to assist the CCO
in being effective in any contracting environment.
B. Interim Solution - JCC Handbook Online:
The DVD and Website versions of the Third Edition, which is under development, will have a
process interface as well as the Topical Index. The two interfaces will provide the CCO with ready
access to assistance, reference materials, templates, etc. as they are needed. The content of the
Fourth Edition is also being formatted so that the material may be readily accessible and useable
from a PDA in the future.
The chart below shows that the JCC Handbook is useful with or without connectivity, in all phases
of an operation, because the DVD is provided as a backup to Web availability.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCC Handbook Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the JCC Handbook:
Second Edition: 3
rd
QTR FY09
Third Edition 3
rd
QTR FY10
Fourth Edition 3
rd
QTR FY11
D. Funding Requirements:
Funding requirements for the JCC Handbook have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
-
$120K - $140K - $160K
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Appendix O Feedback & Lessons Learned
A. Requirement:
Deploying CCOs need access to information about their next duty station while commanders,
planners and policymakers need feedback on what works and what needs to be improved in our
support to CCOs and the Warfighters. The need is for an automated, data driven after-action
reporting system that aggregates information provided by CCOs for subsequent analysis in support
of planning, training, preparation for deployments and policy development.
B. Interim Solution - Joint After Action-Report:
The Joint After-Action Report (JAAR) was developed to provide Deploying CCOs need ready-
access to information about their next duty station from CCOs that have previously been assigned
to that mission. The JAAR will also provide feedback to commanders, planners and policymakers
concerning what is working well and what needs to be improved in our support to CCOs and the
Warfighters. The Joint AAR will be data driven, so that the information provided by CCOs can be
aggregated for subsequent analysis in support of training and policy development.
Within 30 days after redeployment, each CCO is required to complete an electronic after-action
report. After-action reports specifically address:
A formal update of site survey information concerning potential sources of supply to include
items obtained through the U.S. Embassy, host nation support, or servicing U.S. military
installations.
Evaluation of any Host Nation Support Agreement or comparable understanding, Status of
Forces Agreements, if applicable, and the impact of these agreements upon contingency
contracting within the area (applies to overseas contingency).
Problems encountered with the contracting process to include local customs, shortages of
supply within the local economy, local political or diplomatic impediments, language
difficulties, funding, currency exchange rate fluctuations, and security issues or concerns.
Observations on SPOT, Theater Business Clearance, JCAMS, and other acquisition ttools.
Local transportation, billeting, and communication resource availability.
Adequacy of facilities, equipment, and other support provided.
Special personnel requirements (rank, skill level, etc.), contingency kit requirements, or
individual clothing and equipment requirements to meet mission demands in this area.
The chart below shows that the JAAR is useful with or without connectivity, as the report may be
completed after the contracting officer has returned from deployment and connectivity is available.
The JAAR will provide information to contracting officers that are about to be deployed, and to
management, trainers, and planners in all phases of an operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JAAR Yes No Yes Yes Yes Yes
C. Development Milestones:
Contingency Business Environment CONOPS DPAP December 20, 2010
3
The following are the major development & deployment milestones for the JAAR:
Pilot Testing: 2
th
QTR FY10
Full Deployment 3
rd
QTR FY10
D. Funding Requirements:
Funding requirements for the JAAR have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$330K $90K $90K $90K $90K $90K
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix P GCC Contingency Contracting Websites
A. Requirement:
As means of increasing compliance with contingency operations requirements and, potentially,
the efficiency and effectiveness of contracting operations, DPAP requires commanders of
Geographic Combatant Commands to ensure their Contracting Office(s) maintain a webpage
listing of all prevailing regulations, polices, requirements, host nation laws, orders/FRAGOs,
GCC directives, unique clauses and other considerations necessary for soliciting and awarding
contracts for performance in, or delivery to, that GCC’s AOR. The objective is to establish a
reliable way to get current AOR unique information out to those who will be awarding,
performing or overseeing the execution of contracted support in a GCC’s AOR. Failure to
provide such information may:
Affect the ability of the contractor to execute the contract
Result in unplanned support burdens being placed on the government
Result in violations of GCC/Joint Force Commander directives or host nation laws
B. Interim Solution:
DPAP is working with the GCC’s to develop webpages with standardized organization that provide
one stop shopping for public Operational Contract Support (OCS) content in the GCC’s AOR.
The webpages are tailored to key categories of users:
Contracting offices
Requiring activities/CORs
Contractors
The chart below shows that the GCC Websites require Web connectivity, but are useful in all phases
of an operation.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
GCC Websites Yes No Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the GCC CC Websites:
Initial Website Design 3
rd
QTR FY09
GCC CC Websites Reorganized 1
st
QTR FY10
Updates Completed 3
rd
QTR FY10
D. Funding Requirements:
Funding requirements for the GCC CC Websites have been identified as follows:
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
RDT&E
O&M
Contingency Business Environment CONOPS DPAP December 20, 2010
2
doc_181311281.pdf
Contingency Business Environment Concept of Operations
Contingency Business Environment CONOPS DPAP December 20, 2010
Contingency Business
Environment
Concept of Operations
Version 5.0
December 20, 2010
Contingency Business Environment CONOPS DPAP December 20, 2010
Table of Contents
Table of Contents ............................................................................................................................................................................................... 1
1 Executive Summary .................................................................................................................................................................................... 5
2 Problem Statement .................................................................................................................................................................................... 6
2.1 Problem Definition ......................................................................................................................................... 6
2.2 Problem Context ............................................................................................................................................. 8
2.2.1 Gansler Commission............................................................................................................................. 8
2.2.2 Commission on Wartime Contracting (COWC) in Iraq and Afghanistan ................................... 9
2.2.3 DoD Priority Performance Goal 7: Provide effective business operations support to
Overseas Contingency Operations ............................................................................................................... 9
2.2.4 Chairman of the Joint Chiefs of Staff Dependence on Contractor Support in
Contingency Operations Task Force, Phase II: An Evaluation of the Range and Depth of
Service Contract Capabilities in Iraq ......................................................................................................... 10
2.2.5 Commander, International Security Assistance Force/United States Forces-
Afghanistan (COMISAF) Counterinsurgency (COIN) Contracting Guidance .................................. 10
3 Contingency Business Tools Concept ........................................................................................................................................ 10
3.1 Data Strategy................................................................................................................................................. 12
3.2 Common Infrastructure .............................................................................................................................. 14
3.3 Communications Requirements................................................................................................................. 15
3.3.1. Communications Infrastructure ..................................................................................................... 15
3.3.2. Business Systems Design Considerations ..................................................................................... 16
3.3.3. Scope of Communications Requirement ...................................................................................... 16
3.4 Leveraging Existing Tools and Technology .............................................................................................. 17
3.5 Situational Requirements ............................................................................................................................ 17
3.5.1. Kit Configurations Tailored to Operations .................................................................................. 20
3.6 Management Reporting ............................................................................................................................... 21
3.7 Spiral Development ..................................................................................................................................... 21
3.8 Milestones ...................................................................................................................................................... 22
4 Contingency Business Operations Manager (cBOM) ........................................................................................................... 22
5 Governance .................................................................................................................................................................................................. 24
5.1 Stakeholders ................................................................................................................................................... 25
5.2 Users ............................................................................................................................................................... 25
5.3 Functional Sponsors ..................................................................................................................................... 25
5.4 Governance Structure .................................................................................................................................. 25
5.4.1. Contiingency Business Environment Steering Committee ................................................................. 26
5.4.2. Contingency Business Environment Working Groups ....................................................................... 27
5.4.2.1. Backbone Infrastructure Working Group .................................................................................. 27
Contingency Business Environment CONOPS DPAP December 20, 2010
2
5.4.2.2. Communications and Bandwidth Working Group .................................................................. 28
5.4.2.3. Process and Applications Working Group ................................................................................. 28
6 Summary and Conclusion .................................................................................................................................................................. 28
Appendices - Introduction ........................................................................................................................................................................... 1
Funding Requirements: .................................................................................................................................. 3
Appendix A Message Brokering Backbone ...................................................................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Global Exchange (GEX): ................................................................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix B Requirements Generator .................................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Contingency Acquisition Support Model (cASM): ......................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix C Purchase Cards & Convenience Checks ................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Solution - Government Commercial Purchase Card (GCPC) & Convenience Checks: ........... 1
C. Development Milestones: .................................................................................................................... 1
E. Funding Requirements: ........................................................................................................................ 1
Appendix D Field Ordering and Payment Tool ................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution – 3in1 (Ordering, Receiving, and Paying) Tool:................................................. 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix E Tracking and Reporting Cross- Servicing Agreements ................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - ACSA Global Automated Tracking and Reporting System
(AGATRS): ...................................................................................................................................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 2
Appendix F Supplier Relationship Management (SRM) ............................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Joint Contingency Contracting System (JCCS): .............................................. 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix G Contract Writing System................................................................................................................................................... 1
Contingency Business Environment CONOPS DPAP December 20, 2010
3
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - the Standard Procurement System (SPS): ......................................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix H Electronic Access to Business Documents ............................................................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Electronic Document Access (EDA): ............................................................. 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix I Electronic Receipt and Acceptance ............................................................................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Wide Area Workflow (WAWF): ........................................................................ 1
C. Development Milestones: .................................................................................................................... 3
D. Funding Requirements: ........................................................................................................................ 3
Appendix J Contingency Distribution System................................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution – Deployable Distribution Standard System (DDSS): ...................................... 1
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 2
Appendix K Oversight of Contractor Stewardship of Government-Furnished Property ....................................... 3
A. Requirement: ......................................................................................................................................... 3
A. Interim Solution DoD IUID Registry and GFP Hub:.................................................................... 3
B. Development Milestones: .................................................................................................................... 5
C. Funding Requirements: ........................................................................................................................ 5
Appendix L Management of Contracting Officer Representative Resources .............................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Contracting Officer Representative (COR) Tool: ........................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix M Oversight and Control of Contractors ...................................................................................................................... 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - Synchronized Predeployment and Operational Tracker (SPOT): ................ 1
C. Development Milestones: .................................................................................................................... 4
D. Funding Requirements: ........................................................................................................................ 5
Appendix N Contingency Contracting Tools, Templates and Training ............................................................................ 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution - JCC Handbook Online: ...................................................................................... 1
Contingency Business Environment CONOPS DPAP December 20, 2010
4
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Appendix O Feedback & Lessons Learned ......................................................................................................................................... 2
A. Requirement: ......................................................................................................................................... 2
B. Interim Solution - Joint After Action-Report: ................................................................................. 2
C. Development Milestones: .................................................................................................................... 2
D. Funding Requirements: ........................................................................................................................ 3
Appendix P GCC Contingency Contracting Websites ................................................................................................................. 1
A. Requirement: ......................................................................................................................................... 1
B. Interim Solution: ................................................................................................................................... 1
C. Development Milestones: .................................................................................................................... 1
D. Funding Requirements: ........................................................................................................................ 1
Contingency Business Environment CONOPS DPAP December 20, 2010
5
1 Executive Summary
Warfighters in a contingency environment need easy-to-use tools that simplify the acquisition
process and get requirements fulfilled quickly and efficiently. A major recommendation from the
Commission on Army Acquisition and Program Management in Expeditionary Operations (the
Gansler Commission) was that, ?Expeditionary forces need information technology and e-business
tools.? This recommendation was driven by the determination that expeditionary missions require
the ability to quickly initiate a procurement action, complete the required electronic documents,
route the documents to the appropriate reviewers and approvers, and get the requirements quickly
on contract through a seamless transfer of data. The environment includes combat operations,
stability operations, natural disasters, and other calamitous events—such as those associated with
GWOT, hurricane, tsunami, and earthquake relief, and taming forest fires.
This Contingency Business Environment (CBE) Concept of Operations (CONOPS) outlines a
strategy to drive interoperability when inserting technology and e-business tools into the
contingency environment. The objective is to optimize the acquisition process by providing a
simple, seamless, pre-award, award, and post-award acquisition toolkit to support the end-to-end
contingency business process while making accurate, current, and complete information available to
operational forces, procurement and finance officials, and senior leaders. This will also satisfy
warfighter needs by making contracting information available for planning and operational needs
and will permit timely, accurate business knowledge to be integrated into intelligence, planning, and
operations to better accomplish mission objectives.
The vision for the future electronic applications in the CBE toolkit is to enable interoperability
through a common, reusable infrastructure. The backbone of the infrastructure will provide a
universal standard for all contingency e-business tools, regardless of the lead Service, to enable the
interoperation of "plug and play" tools, the selection of which is tailored to the deployment. The
toolkit available to support an operation will be comprehensive, covering all phases of an acquisition
from requirements development and review through contract award, performance monitoring,
delivery, acceptance, payment, and close-out. The knowledge developed and captured in the process
will be used in both the warfighter and business domains. The suite of tools will also be scalable for
effective performance through all phases of DoD operational life-cycle, from Phase 0, steady state
and shaping, through the operational phases of a contingency, from the most austere deployment to
advanced sustainment operations.
User interfaces will integrate applications and data from disparate service and agency planning and
execution systems and provide access through a portal that allows single sign-on to applications,
access to data and reports, and is configurable with security layers so that appropriate users have
access depending on their roles and responsibilities in the process. The toolkit will be available via
internet access and will be user-friendly in austere environments. The future CBE toolkit would be
implemented so disconnected users could operate 24/7 using ’snapshots’ of data that would be
automatically refreshed with connectivity and synchronized with the main Global Exchange (GEX)
server – DoD’s future enterprise service bus for business system integration. Refreshed information
will be available throughout the information enterprise.
Contingency Business Environment CONOPS DPAP December 20, 2010
6
The CBE Toolkit will provide a service where authorized users can receive information and
accomplish their mission relative to their roles and responsibilities. Procurement officials and
requiring activities and organizations will be able to initiate requirements and review the status of
procurements, resource managers will be able to better plan for future funding requirements, and
senior leadership and planners will be able to monitor the larger picture of the acquisition enterprise
and the impact of contracted support on operational matters.
The key to realizing this business enterprise vision is a data strategy that facilitates interconnectivity
between applications in the toolkit through the flow of data that conforms to standards as defined
by the Financial Data in Procurement (FDIP) and the Standard Financial Information Structure
(SFIS). These standards will also satisfy Global Information Grid (GIG) needs. The strategy
requires gradual phases of system implementation building toward the goal of an enterprise business
architecture that will support defense users by providing readily accessible, accurate, timely and
standard acquisition information supporting end-to-end business processes across tactical,
operational and strategic management levels. Additionally, this CONOPS addresses these
capabilities from an enterprise perspective to reduce and eliminate stand-alone systems wherever
possible.
The tools described in this document will support the larger acquisition process from operational
planning through requirements generation, contract execution, performance assessment, payment
and close-out while feeding business intelligence back to the planners and warfighters. From a
management perspective, the overarching goal is an automated, seamless process and data flow from
planning systems to requirements generation, contracting and financial systems with a phased
approach to building follow-on connections to contract administration and logistics systems. The
data flowing through the systems will be available to senior leaders and warfighters at all times to
support business intelligence and decision making to include planning, spend analysis, supplier
relationship management, staffing requirements, budget decisions, and the future modification of
the overall system as necessary.
2 Problem Statement
2.1 Problem Definition
Contracting in a contingency environment bears all the complexities of DoD contracting in general,
except that it operates at mission-critical tempo, often without the support and connectivity of
contracting at home. The steps from requirement development through contract award, vendor
payment and contract closeout remain the same with business rules linked to the Federal Acquisition
Regulation (FAR). However, the information developed through these steps needs to be available
to both operational (warfighter) and business domains to fully enable mission success. To
complicate the process in a contingency, the organizations involved in the process are often in
different commands and geographically separated from each other. The service member in a
contingency who needs supplies, the military contracting activity that procures the supplies, and the
pay/administrative offices are often separated by great distances with e-business tools that are not
integrated. While this may not be unlike bases, stations, and installations in CONUS, the
complexities in a contingency environment are the relatively austere infrastructure, the volume of
procurement actions, criticality of the requirements, the speed with which they need to be procured,
Contingency Business Environment CONOPS DPAP December 20, 2010
7
and the importance of capturing data for planning, intelligence, and operational needs. These
complexities create unique enterprise business problems that require necessary and urgent solutions.
Until recently, there has been little focus on planning for, designing, and deploying technology and
e-business tools suitable for use in an environment that may have little or no connectivity, with high
latency, and varying levels of bandwidth. Similarly, little attention has been paid to end-to-end needs
outside the acquisition business process. Existing enterprise e-business tools were developed to
satisfy the needs of the larger enterprise with little or no consideration given to the operation of
these tools in a contingency environment. Because these tools often require established technical
infrastructure, contracting professionals are limited in the supporting resources and struggle to
provide maintenance and services in the field.
To the extent that systems exist to assist acquisition professionals in today’s contingency operations,
they are home-grown, incompatible, and lack integration with other systems. The acquisition
activities struggle to fulfill requirements in an efficient manner. The lack of efficient and adequate
tools causes operational deficiencies such as incomplete, redundant, and conflicting requirements
and an unsynchronized review process. This causes unacceptable delays in operational oversight,
service delivery and an inability to provide the necessary, time-sensitive, acquisition support.
Requestor
Resource Manager (RM): Validates Budget Line,
Funding Priorities, Complete Market Research,
Complete SOW
-Approves/Disapproves
UPR, Market Research,
SOW, IGE
Hard Copy, Email, Fax
Contracting Office: 1) Enters PR&C into
PD2 2) RCC Chief Assigns PR&C
to KO 3) KO Receives Info to
solicit/award contract from RM
PR&C, Case
Information
Hard Copy,
PRWeb,
AFAMs
CJ8: Validates
Funding
Back to
RM to fix
Funding
Info
Back to Requestor for
further justification
Resource Manager (RM):
Completes PR&C
Complete
PR&C
w/ LOA
Hard Copy, Fax
Email, PRWeb
to PD2
UPR,
Market
Research,
SOW, IGE
Hard
Copy,
Email,
Fax
KO: Solicits then awards Contract via
militarycontracting.com in case of
purchase over 750K or awards contract to
vendor directly for amounts under 750K
Hard
Copy,
Email, Fax
Copy of
Contract
Hard
Copy,
Email,
Fax
Copy of
Contract
Hard
Copy,
Email, Fax
Copy of
Contract
Vendor
Copy of
Contract
Hard
Copy,
Email,
Fax
Requestor: Accepts
Items Signs Invoice
Services/
Items
Delivery
Hard Copy,
Email, Fax
Invoice
KO: Validates
Invoice Information
is Complete
RM: Prepares DD-250
Invoice Hard Copy,
Email, Fax
Requestor: Signs
Receipt/Acceptance
on DD-250
Invoice,
DD-250
Hard Copy,
Email, Fax
RM: Ensures DD-250/
Invoice are accurate
Signed
DD-250
Hard Copy,
Email, Fax
Signed
DD-250/
Invoice
Hard Copy,
Email, Fax
KO: Validates Invoice/
DD-250 Complete
Signed
DD-250/
Invoice
Hard Copy,
Email, Fax
Finance: Processes
DD-250/Invoice for
Payment to Vendor
Vendor: Receives
Payment
CJ8: Receives final
Payment amount and
records against LOA
KO: Addends Payment
Info to Contract –
Files Information
Payment
Info
Hard Copy,
Email, Fax
Payment
Information
Hard Copy,
Email, Fax
Payment
EFT, Check,
Cash
Figure 1 – Procurement and Payment Process in Afghanistan
Contingency Business Environment CONOPS DPAP December 20, 2010
8
Figure 1 displays the multiple steps and actions needed to procure items in the Afghanistan area of
operations, drawn from the perspective of a returning resource manager. There is an immediate
operational need to streamline and improve this process using technological capabilities and a
simplified, more efficient approach to acquisition. Additionally, governmental and defense
leadership is demanding a more effective and transparent acquisition process.
Deficiencies in the current acquisition environment that require improvement include:
? Information Management: Isolated IT systems from DOD services and agencies have not been
designed to interface and share information with other DOD systems, forcing manual data entry
in multiple systems to move information from one to another throughout the end-to-end
business process.
? Communications: Users often go for periods of time with little or no connectivity to the CONUS-
based systems they depend upon for operation. This makes e-tools that are readily available in
CONUS difficult or impossible to access because of practical restrictions on access (bandwith)
and limitations due to operational security.
? Infrastructure: Particularly in the early phases of an operation there may be little or no business
infrastructure available - users need solutions that can operate effectively independent of local
infrastructure and capabilities.
? Data Management: Visibility across the entire spectrum of procurement operations is limited or
non-existent causing an information gap for Defense leadership and making acquisition
decision-making less than optimal;
? IT Solutions: Today’s procurement applications were designed for a garrison activity in CONUS
without consideration of deployment in an austere environment.
? Training and Support: Independent IT programs that have not been integrated into the larger
enterprise system inhibit training efforts as well as creating common support packages.
2.2 Problem Context
2.2.1 Gansler Commission
In its October 31, 2007 report, the Gansler Commission identified training and tools for contracting
activities as critical to future success in contingency contracting. The commission emphasized that
five years into Operation Iraqi Freedom (OIF), deficiencies persisted. The Gansler Commission
documented this need as part of their findings:
The complexity of defining the warfighters’ requirements adequately so that they
can be used as the foundation of a binding contractual agreement that results in
satisfactory performance for the warfighter has been overlooked by those
responsible for resourcing the Army’s shift to outsourcing support services.
Neither the warfighter nor the contracting officer has resources available that
can provide assistance in this area.
Contingency Business Environment CONOPS DPAP December 20, 2010
9
2.2.2 Commission on Wartime Contracting (COWC) in Iraq and Afghanistan
The Commission on Wartime Contracting (COWC) in Iraq and Afghanistan (established by Section
841 of the National Defense Authorization Act for Fiscal Year 2008) was created to assess Federal
agency contracting for:
1. The reconstruction of Iraq and Afghanistan;
2. The logistical support of coalition forces operating in Iraq and Afghanistan; and,
3. The performance of security functions in Iraq and Afghanistan.
Inherent in the COWC’s assessment will be the consideration of the recommendations of the
Gansler Commission. In June of 2009 the COWC issued its interim report AT WHAT COST?
Contingency Contracting in Iraq and Afghanistan where they reiterated the challenges and deficiencies of
contracting support to the Warfighters noted by the Gansler Commission.
The COWC’s interim report stated that the management and planning processes must be enhanced
by identifying business solutions that can capture the requisite data from reliable sources in a
seamless end to end process from requirements generation through contract payment. These tools
will allow leaders to determine the level of contracting activity by monitoring data on the number
and types of procurement transactions, budget appropriations, and contract disbursements. They
can then identify the number, placement, and required level of training of personnel needed to
successfully accomplish the award, administration, and oversight of contracts in a
contingency/deployed environment. The availability of accurate data will make it possible for
managers to continually make adjustments in the workforce and the resultant tempo of the
contracting workforce to match the Warfighter operations tempo. As stated in the COWC Report
?Without accurate and timely contract-transaction data, acquisition managers cannot make quality
strategic-sourcing decisions or provide necessary acquisition workforce and budgetary resources?
Fundamental data points that acquisition managers need for effective planning include:
? Number of transactions
? Transaction values
? Contract type (e.g. fixed price or cost reimbursement)
? Classification of products and services being acquired
? Locations of service-contract performance
It is anticipated that their final COWC report will include actionable recommendations for
improvements in these areas and others that may be discerned during their hearings and analyses.
2.2.3 DoD Priority Performance Goal 7: Provide effective business operations support to
Overseas Contingency Operations
DoD recognizes that inefficiencies in the current acquisition process in the contingency
environment create problems fulfilling contingency requirements in support of the mission in a
timely manner, and established providing effective business operations support to overseas
contingency operations as a Priority Performance Goal. Solving this problem will ensure more
timely delivery of needed supplies and materials, reduce wasteful overstocking, avoid costly interest
penalties, allow for more efficient utilization of funding resources and help prevent fraud.
Contingency Business Environment CONOPS DPAP December 20, 2010
10
Resolution of this problem will contribute to DoD’s ability to better accomplish its mission by
getting the right materials in the right quantity for effective utilization. In addition, it will optimize
spending by DoD. These objectives are part of the DoD’s overall strategic goals for prevailing in
overseas contingency operations, strengthening joint warfighting capabilities and transforming
enterprise management.
2.2.4 Chairman of the Joint Chiefs of Staff Dependence on Contractor Support in
Contingency Operations Task Force, Phase II: An Evaluation of the Range and
Depth of Service Contract Capabilities in Iraq
The Chairman’s Task Force review of contractor support in contingency operations identified the
need to determine where the Joint Force is most dependent on contractor support to better
understand the range and depth of contractor capabilities and guide the development of future
contingency planning efforts. In order to develop its recommendations, the Task Force performed
an in-depth review of contracts in use in Iraq. This effort identified shortcomings in data quality,
accessibility, categorization, and completeness. As a result, the Task Force recommended that ?OCS
planning and deployable capabilities must grow substantially and adopt a pre-crisis (Phase 0)
approach to planning and fielding a rapidly scalable, robust ?5th Force? (contractors) that may equal
or exceed the military footprint.? Accordingly, a planning process and planning tools perspective
will evolve alongside expeditionary or execution tools in future generations of the TBE.
2.2.5 Commander, International Security Assistance Force/United States Forces-
Afghanistan (COMISAF) Counterinsurgency (COIN) Contracting Guidance
COMISAF’s 8 September 2010 Guidance stresses that contracting has to be "Commander's
business" and that he expects Commanders to consider the effects of contract spending and
understand who benefits from it. With proper oversight, contracting can spur economic
development and support the Afghan government's and ISAF's campaign objectives. If, however,
we spend contracting funds quickly and with insufficient oversight, it is likely that some of those
funds will unintentionally fuel corruption, finance insurgent organizations, strengthen criminal
patronage networks, and undermine our efforts in Afghanistan. We must be better buyers and buy
from better people We must use intelligence to inform our contracting and ensure those with whom
we contract work for the best interests of the Afghan people.
3 Contingency Business Tools Concept
The DoD established a business system task force committed to leveraging existing resources and
knowledge to quickly provide contingency forces with information technology and simple, user-
friendly, e-business tools in a contingency. The task force’s mission is to establish, in consultation
with the CENTCOM Joint Theater Support Contracting Command (JTSCC), the necessary tools for
contracting officers deployed in support of a contingency operation - mindful of bandwidth, latency,
and connectivity challenges inherent in a contingency operations environment. The intent is to
develop a toolkit approach that evolves as the phase of a mission in the area of operations mature.
Each of these mission phases presents a different set of challenges which the toolkit must address
and different constraints under which the system must operate. These mission phases are:
? Deployment
? Build up
Contingency Business Environment CONOPS DPAP December 20, 2010
11
? Sustainment
? Turnover/redeployment
The task force is addressing the information technology and e-business needs through a holistic
approach that will close the gaps in the acquisition business process. Contracting professionals only
provide a piece of the entire capability – planning, requirements generation, accounting, budgeting,
quality assurance, and contractor performance management are all responsibilities external to
contracting. The task force is looking to leverage existing data and technology in an effort to
improve the overall capabilities. The effort is focused primarily on an agile approach with data being
the lynchpin to interoperability across all business lines for each capability.
In pursuit of this goal, the task force conducted extensive research, working in collaboration with
JTSCC, the Services, and key Defense Agencies, to identify system functions in existing technologies
and e-business tools for potential adaptation to a contingency environment. They also analyzed
existing technologies and e-business tools, with consideration given to different phases of
contingency operations and missions (kinetic, non-kinetic and peace time (humanitarian, aircraft
recovery, natural disaster, etc.)) that address business capability gaps. As a result of this analysis the
DoD determined the following areas need attention to improve the basic contingency business
capability of the end-to-end acquisition business process.
? Tools reserved for small-value purchases:
o Purchase cards
o Convenience checks
o Simplified process for on-the-spot, over-the-counter purchases where the
infrastructure does not support the use of purchase cards
? Requirements determination and acquisition/financial approval—use of a tool appropriate
to the environment (e.g., web based, similar to commercially available tax software)
? Contract writing—use of a tool with user-friendly functionality and availability of all
necessary documents
? Invoicing, receipt and acceptance— use of a secure web-based system, in support of
contingency operations
This CONOPS promotes the development and rapid deployment of a suite of tools to assist in each
phase of the procurement process from requirements development to contract closeout in a logical,
automated, systematic and transparent operation that can easily be transported to, and used in
austere OCONUS or contingency operations. The tools will actively network warfighters,
management, planners, and procurement practitioners into a standardized process that builds, links
and translates raw data into actionable information through a series of interactive tools. The
backbone of this system is the transfer of standard procurement data to and from the systems and
applications in the respective knowledge domains.
To better support business operations in environments where bandwidth, latency and connectivity
present technical challenges, there is a focus on adopting an approach that will enable systems to
operate effectively in an austere environment while permitting seamless end-to-end data flow, from
requirement definition to contract closeout. The approach is based on a construct that leverages
data standards, smart client applications and web services, to the greatest extent possible. This
construct utilizes smart client applications designed to support users and operations regardless of
Contingency Business Environment CONOPS DPAP December 20, 2010
12
connectivity. Smart clients are Rich Graphical User Interface (GUI) applications that reside on a
local machine, desktop or laptop, and consist of a light weight database. Moreover, the smart client
is designed to automatically detect whether a user is connected or disconnected; when disconnected
the application stores data locally until connectivity is detected. Once connectivity is restored, the
smart client leverages web services to transmit the data stored locally to the systems centralized
server. Doing so, avoids additional risk and cost introduced when deploying separate instances of a
client-server based system in a contingency. Critical to this model is adherence to data standards and
format specifications defined by a common schema, which provides the ability to successfully
transmit data between the smart client and a centralized server. Ultimately, the approach will permit
systems to pass standard data entered to initiate a contract action to a data warehouse where it can
be used by a contracting writing system to award a contract, and a finance system to effect payment.
The CBE end state is a set of interoperable tools, based on key data elements, that complete critical
elements of the procurement process from requirements development to contract closeout in a
logical, automated and systematic process that can be used in contingency operations OCONUS, as
well as in homeland emergencies. Business objects need to be accessible to the Warfighter across
multiple domains from any NIPRNET connection and generate auditable business transactions to
account for resources used to support mission requirements. Each required business operation
should be supported by an information exchange requirement containing key performance
parameter (KPP). Data used to support CBE operations must primarily be acquired from the
system of record and be supported by a business process.
3.1 Data Strategy
The DoD is committed to providing accurate and timely financial information necessary to support
sound decision-making, prudent expenditure of resources, and to facilitate audit and oversight. A
key component to accomplishing this is readily accessible and accurate procurement data. DoD has
established clear, enterprise-wide contract data standards that will lead to improved accuracy
throughout the DoD’s business systems and support the visibility of the data for all types of
reporting. To this end, DoD has published a Procurement Data Standard (PDS), based on a system-
agnostic data model using common language and business rules, that is intended to become the
DoD-wide standard for contract data output. Use of the PDS for contingency and CONUS
procurement enables actions from both environments to be shared.
The goal of supporting the procurement of supplies and services needed by the Warfighter in a
contingency environment with e-business tools will be best met through systems that use standard
data, so that data is in a format that can be read interchangeably by systems supporting the end-to-
end business process. Figure 2 shows the flow of data from requirements generation through
contract payment.
Contingency Business Environment CONOPS DPAP December 20, 2010
13
P
R
O
C
E
S
S
S
Y
S
T
E
M
Award & Obligation
Award & Obligation
Receipt and Acceptance
Receipt and Acceptance
Entitlements
Entitlements
Disbursement &
Payment
Disbursement &
Payment
Purchase Request &
Commitment
Purchase Request &
Commitment
1. PRIdentifier,
PRLineItem
PRFundID
Agency
Accounting
Identifier
2a. PIIN/SPIIN,
CLIN/SLIN/ELIN, ACRN
PRIdentifier, PRLineItem,
PRFundID
2b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
3b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
4. PIIN/SPIIN/CLIN/SLIN/ELIN
Acceptance or Approval Data
routed by
Agency Accounting Identifier
5. PIIN/SPIIN
CLIN/SLIN/ELIN
6. Ready to Pay
File
Vendor
Accounting
Contract
Writing
Purchase
Order
Entitlement Requisition
Customer
Receipt
and Acceptance
Contract
Repository
Disbursement
1. PRIdentifier,
PRLineItem
PRFundID
Agency Accounting Identifier 3. PIIN/SPIIN
CLIN/SLIN/ELIN Agency
Accounting
Identifier
2b. PIIN/SPIIN
CLIN/SLIN/ELIN
Agency Accounting Identifier
4. PIIN/SPIIN,
CLIN/SLIN/ELIN
2a. PIIN/SPIIN/CLIN/SLIN/ELIN, ACRN
PRIdentifier, PRLineItem, PRFundID
Disbursing Purchase Order
EDA
Vendor
Purchase Request
Customer
7. Ready
to Pay
File
SDI
Contract
Writing
5b.1. Only DCMA
Delegated
Contracts
5b.4. PIIN/SPIN
CLIN/SLIN/ELIN
Treasury
Reporting Data
MOCAS WAWF
3a. PIIN/SPIIN
CLIN/SLIN/ELIN
POIdentifier, POLineitem,
POFundID
ERP
5a.1. Advance
Shipment Notice
(TFO and Self)
5a.2. Acceptance
or Approval
(TFO and Self)
Receipt Invoice Approve Advance Shipment Receipt Accept
Entitlement
6. Acceptance or
Approval (TBO)
Accounting
5b.3. PIIN
SPIIN
CLIN/SLIN
Treasury
Reporting
Data
5b.2. PIIN/SPIIN
CLIN/SLIN/ELIN
5b.5.
PIIN
SPIIN/CLIN
SLIN/ELIN
Figure 2 - Data Flow from Requirements Generation through Contract Payment.
DoD has adopted and is implementing the PDS for the creation, translation, processing, and sharing
of all procurement actions. The PDS defines the minimum requirements for contract writing system
output to improve visibility and accuracy of contract-related data, to support interoperability of
DoD acquisition systems and to standardize and streamline end-to-end business processes. Further,
the PDS will improve visibility of contract-related data, enabling senior DoD leadership to make
better informed business decisions.
Much of the data generated during the requirements development and review process is the same
data that is necessary to affect contract award, track performance and make payment. The tools in
this CONOPS will standardize and simplify the user interface and data capture process from
requirements generation through contract payment. Greater efficiencies resulting from the transfer
of standard data elements throughout the process will in turn:
? Improve Warfighter support
? Enable planning for contracted support
? Improve IPT productivity
? Provide a repeatable process
? Assist newly deployed personnel
? Generate an automated initial draft of all required acquisition documents
? Improve continuity
? Provide management real-time access to acquisition status
? Provide acquisition history and highlight potential bottlenecks
? Provide a centralized and complete acquisition history
? Generate an automated audit trail of the acquisition
? Enable management oversight
Contingency Business Environment CONOPS DPAP December 20, 2010
14
3.2 Common Infrastructure
The tools in the CBE end state will interoperate through a common, reusable infrastructure. The
infrastructure will consist of several components focused on providing an operational construct
leveraging standard data transactions. This backbone will be a common standard for all contingency
e-business tools, regardless of the lead Service, to enable the interoperation of "plug and play" tools
while assisting in achieving interoperable data flow, end to end, from purchase request to contract
closeout.
The interim CBE will leverage a single system to provide message broker, routing, and mediation
services between multiple DoD and Federal government agencies as well as commercial industry.
Moreover, the mechanism will serve as the enterprise service bus for business system integration
across DoD and the Federal community and will provide the means necessary to communicate using
web-services with emerging and legacy systems.
The second component of the common infrastructure will be an enterprise capability that will enable
existing enterprise business capabilities to generate and receive purchase request information. This
capability will store the ?bridge? or linkage between a Procurement Request (PR), the requesting
agency’s accounting system, and the performing agency’s contract writing systems to support a
seamless, transparent, accountable, continuously available and fully deployable PR process.
Finally with the common infrastructure as the backbone, the use of smart client applications and
web services, an acquisition dashboard will provide the interface that will make the tools and data
more accessible and interoperable for all users .This dashboard would be accessible via the internet
within a single sign-on environment and have both on and off-line capabilities depending on
bandwidth, latency, and connectivity levels of the immediate technical environment. Authorized
users will be able to receive any information related to their activity on this acquisition dashboard.
The remainder of this approach is discussed in greater detail throughout.
Required capabilities in the operational end state to address the procurement lifecycle will include
business tools and data necessary to facilitate accomplishing the procurement mission from the
point of requirements generation through to contract closeout. These required capabilities are
identified in below.
Required Capability Proposed CBE Tool
Message Brokering Global Exchange (GEX)
Requirements Generator Contingency Acquisition Support
Module (cASM)
Central Contractor Registry
Central Contractor Registry (CCR)
Central Contractor Registry for Local
Vendors in AOR
Joint Contingency Contracting System
(JCCS)
On-Line Representations & Certifications On-Line Representations &
Certifications Application (ORCA)
Contingency Business Environment CONOPS DPAP December 20, 2010
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Fed Biz Ops for Local Vendors in AOR Joint Contingency Contracting System
(JCCS)
Single Face to Industry & Government for
Receipt/Acceptance/Invoice
Wide Area Workflow (WAWF)
Single Face to Industry & Government for
Contract Data & Business Intelligence
Electronic Document Access (EDA)
Oversight and Control of Contractors Synchronized Predeployment and
Operational Tracker (SPOT)
3.3 Communications Requirements
3.3.1. Communications Infrastructure
Acquisition officials continue to wrestle with the challenges created by today’s communication
infrastructure. With the recently approved Global Defense Posture we have the opportunity to build a
Joint C4 Enterprise architecture, looking beyond the current battles of Iraq and Afghanistan to
proactively shape the area of operation as the environment matures. Acquisition system architecture
relies on a robust Defense Information Systems Network (DISN) infrastructure capable of seamlessly
providing commercial quality service to the area of operation following the key tenets of survivability
and performance while providing defense in depth. Communications required support and sustain
business operations need to be addressed before, during and after deployment.
In the future, DoD will migrate to a communications architecture that is more robust, flexible, and
supportive of contingency missions. Today, personnel in theater are using internet protocol (IP)
satellite modems beyond the tactical applications and are employing them across the backbone to
extend C2 services. Established Enterprise standards, DoD and service policies create domains that
are integrated by common ’Digital Rules of Engagement’, where functionality is facilitated at the
application layer. Planners implement network operations across the Global Information Grid
(GIG) through a common set of standards and tools that allow us to see the network from end to
end. DoD network planners and operations engineers manage complex and constantly changing
networks, and are responsible for the performance and uptime of business-critical services and
applications. To face these challenges, defense network providers will need to rely on software
solutions to:
? Accelerate new network services and technology to deploying military units
? Optimize network performance through traffic engineering and right-sizing of capacity
? Reduce the risk of downtime and misconfigurations
? Increase security and operational integrity with scheduled audits to pinpoint problems
? React to critical network issues using real-time network troubleshooting
The contingency business environment will require adequate support from the physical
telecommunications networks provided by DISA. This support may be in the form of dedicated
bandwidth or predictable communications windows to allow the seamless flow of data to support
the business processes. Prior to implementation, a telecommunications service request must be
made to DISA and the applicable COCOM.
Contingency Business Environment CONOPS DPAP December 20, 2010
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3.3.2. Business Systems Design Considerations
The contingency business environment will require adequate support from the physical
telecommunications networks provided by DISA. This support will be in the form of dedicated
bandwidth or predictable communications windows to allow the seamless flow of data to support
the business processes. Prior to implementation, a telecommunications service request must be
made to DISA and the applicable CoCOM. That said, with greater attention to the communication
constraints inherent to the CBE, these challenges can be addressed by the Department through
smart system design and deployment approaches.
Below are the elements that must be considered when deploying systems in the contingency
environment. The first set applies to interaction with the communication infrastructure.
? Latency (ms)
? Utilization (%)
? Max Capacity (Kb/s)
? Allocated Capacity (Kb/s)
? Security Requirements
? Traffic Contention Characteristics
? Link Availability Characteristics
? Traffic Prioritization Characteristics
? Packet Loss Rate
Also, essential to defining a communication environment is the classification constraints inherent to
that environment. Some of the elements that need to be evaluated are:
? Data Sensitivity
? Classification
? PII
? Aggregation and Compilation
? NIPRNET vs SIPRNET Operations and Functions
Lastly, lean data exchange characteristics should also be defined as part of the communication
environment to include:
? Amount
? Type
? Update frequency
? Priority – Content or Quality of Service
? Number of Exchange patterns
? Confidentiality
? Integrity
As part of an implementation plan further detail regarding an approach to defining these elements
should be documented and a central knowledge base developed to capture unique communication
characteristics of the contingency environment.
3.3.3. Scope of Communications Requirement
Contingency Business Environment CONOPS DPAP December 20, 2010
17
The IT Backbone required for a single regional contracting center (Kandahar Regional Contracting
Center, KAF-RCC located in Kandahar, Afghanistan) can be used as a baseline for defining and
scoping communications requirements for a contingency operation. The KAF-RCC has internet
access via a 2MB/2MB 1:1 symmetric satellite link from Kandahar to a hub teleport located in Hong
Kong, China. This service provides a dedicated capacity of 2MB to Kandahar and 2MB dedicated
capacity from Kandahar to the internet. A dedicated satellite modem connects to a router that
provides access to the commercial internet. This approach is efficient in its use of satellite
bandwidth and guarantees the quality of service since the capacity is dedicated to this single user and
is not shared.
3.4 Leveraging Existing Tools and Technology
This CONOPS does not describe the execution framework for implementing the CBE. However,
the plan relies on maximizing of existing tools, technology, and systems developed by the Services
and tailoring them for joint use in the contingency environment. This approach will mitigate
technical development risk, minimize development cost, and expedite fielding. To this end, the
DoD and Services are modifying multiple systems identified in the appendices to this CONOPS.
DoD is also modifying the JCCS to provide a front-end dashboard and database for the multiple
applications and underlying data in the contingency e-business system. This capability, described in
the introduction to the appendicies, will standardize reporting across system applications and enable
independent verification and validation of data.
The DoD’s enterprise-wide contract data standards will be used throughout the contingency
business systems. All applications will generate and transmit data in a non-proprietary XML format
that conforms to the DoD Procurement Data Standard for use across the supply chain to enable
reporting in various formats to legacy applications.
Access to applications and data will be provided through secure encrypted digital authorizations
using a DoD Common Access Cards (CAC)-enabled Public Key Infrastructure (PKI) capability.
CAC requires access t9o and use of Real-Time Automated Personnel Identification System
(RAPIDS). RAPIDS is used to issue and maintain CAC and uses personnel information in the DoD
Defense Enrollment and Eligibility Reporting System (DEERS). A contingency application for both
these systems will be required to enable CAC/PKI capability.
3.5 Situational Requirements
Business operations must support all types of contingencies and all phases of the operation. This
will requires adopting, to the greatest extent possible, the concepts introduced within this document.
While some business operations may better serve the Warfighter needs with processing in a
centralized CONUS location, the ultimate goal is to establish the framework for a comprehensive
and innovative set of e-business tools to support procurement process that is seamless, transparent,
accountable and fully deployable. The operational end state will consist of stable applications with
simple user interfaces that operate successfully and consistently where there is limited or no
communications connectivity and bandwidth, intermittent connectivity and/or high latency (delay to
download/transfer of information). Requirements officials, Contingency Contracting Officers
(CCOs), and Contracting Officer Representatives (CORs) will be provided appropriate technology
Contingency Business Environment CONOPS DPAP December 20, 2010
18
(laptops and handheld devices with contingency e-tools preloaded, bundled in ?kit? configurations
tailored for the phase of the operation and the role of the individual users, with scanners, printers,
and redundant power, appropriate for the operation and environment).
While no two contingencies are alike, the model is based on the ability to leverage smart client
applications that are capable of supporting disconnected operations when users are deployed to
remote locations that lack communications connectivity. Additionally, to support operations during
the initial phases of an operation, when the communications infrastructure has yet to be established,
the smart clients must have the capability to import/export data in a specific format being defined
by a common schema specification. This enables disconnected users extended amounts of time
while being disconnected while still allowing data to flow, end-to-end, from purchase request to
contract closeout. Once connectivity is restored, the smart client transmits data stored locally via
web service, or batch file, to the systems centralized server which resides in CONUS.
All participants in the contingency procurement lifecycle will have access to appropriate business
tools and data necessary to effectively accomplish the procurement mission from the point of
requirements generation through to contract closeout. E-Business tools will reflect the phase of the
contingency operations and the operations tempo of the environment in which they are used. E-
Business tools will be employed to reduce the amount of time all players expend to provide the
various data that form the backbone of the process for getting the user the supplies needed, and
getting the vendor paid. The management and planning processes will also be provided with
accurate procurement data that has been captured throughout the process that facilitates optimizing
the workforce to match operations tempo and planning for the next contingency.
The top portion of Figure 3 illustrates the four phases of a contingency operation and the types of
contracting support that is generally associated with each phase of the operation. The bottom
portion of Figure 3 is a separate illustration (unrelated to the phases of the operation) of the stages
in the end-to-end process of procuring supplies and services in a contingency environment.
Contingency Business Environment CONOPS DPAP December 20, 2010
19
Figure 3 – Contracting for OCS in the Four Phases of a Contingency Operation
The e-business tools are intended to operate successfully and consistently with limited or no
communications connectivity and bandwidth, intermittent connectivity and/or high latency (delay to
downloading and transferring of information). Appropriate Warfighters (requirements generators),
CCOs, and CORs will be provided with laptops that have the contingency e-Tools preloaded,
bundled in ?kit? configurations tailored for the phase of the operation and the role of the individual
users, with scanners, printers, and back-up power, appropriate for the operation and environment.
All tools, in all phases of the operation, will be capable of operating as Web-based client/server
applications, but also capable of operating, for limited periods of time, on stand-alone laptops in
remote locations that lack communications connectivity. In such circumstances, the laptop
applications will transmit data to Web-based servers when connectivity, either wireless or through
landline, becomes available.
The extent to which e-business tools may be appropriate for deployment in the different phases of
an operation is largely driven by the communications requirements of the tool, and the extent to
which the tool can operate without communications for a significant period of time. The tools,
identification of whether communications connectivity is required, and the operational phases in
which the tool may be deployed are identified in the chart below. (Each of these tools is discussed in
greater detail in the appendices to this CONOPS.)
Appen Acquisition Laptop Phase I Phase II Phase III Phase IV
Contingency Business Environment CONOPS DPAP December 20, 2010
20
Appen
dix
Tool Comms w/o
Comms
Deploy
ment
Build-up Sustainment Drawdown
A GEX Yes No No Yes Yes Yes
B cASM Yes Yes Yes Yes Yes Yes
C Purchase Card Yes N/A Yes Yes Yes Yes
C Convenience
Check
Yes No Yes Yes Yes Yes
D 3in1 Yes Yes Yes Yes Yes Yes
E AGATRS Yes No No Yes Yes Yes
F SRM Yes Yes Yes Yes Yes Yes
F CPPS Yes No Yes Yes Yes Yes
G SPS-C Yes No No Yes Yes Yes
H EDA Yes No No Yes Yes Yes
I WAWF Yes No No Yes Yes Yes
J DDSS Yes Yes Yes Yes Yes Yes
L IUID Registry Yes No No Yes Yes Yes
L COR Tool Yes Yes Yes Yes Yes Yes
M SPOT Yes Yes Yes Yes Yes Yes
N JCC Handbook Yes Yes Yes Yes Yes Yes
O JAAR Yes No Yes Yes Yes Yes
P GCC Websites Yes No Yes Yes Yes Yes
3.5.1. Kit Configurations Tailored to Operations
The tools must operate as an efficient and effective suite that is seamless to the users in the
environment in which it is deployed. Users do not need additional tools or systems, regardless of
how well they might work, that require multiple entries of the same data into different systems in the
end-to-end business process.
New tools will be preloaded onto laptops and provided to appropriate Warfighters, CCOs, and
CORs in ?kit? configurations, bundled with scanners, printers, and back-up power, appropriate for
the operation and environment.
Contingency Business Environment CONOPS DPAP December 20, 2010
21
All tools will be capable of operating as Web-based client/server applications, but also capable of
operating on stand-alone laptops in remote locations where there is limited or no communications
connectivity and bandwidth, intermittent connectivity and/or high latency. In such circumstances,
laptop applications will transmit data to Web-based servers when connectivity becomes available.
This will be accomplished through the use of smart client applications designed to support users and
operations regardless of connectivity. Smart clients are Rich Graphical User Interface (GUI)
applications that reside on a local machine, desktop or laptop, and consist of a light weight database.
The smart client is designed to automatically detect whether a user is connected or disconnected;
when disconnected the application stores data locally until connectivity is detected. When
connectivity is restored, the smart client leverages web services to transmit the data stored locally to
the systems centralized server which resides outside of the congtingency. Critical to this model is
adherence to data standards as the ability to successfully transmit data between the smart client and a
centralized server requires data to be passed in a specific format being defined by a common schema
specification.
3.6 Management Reporting
Operational e-business tools will integrate business processes that link the enterprise architecture to
data and information management. This will encourage cooperation with other related business
domains, across DoD and provide consistent, full-spectrum acquisition processes and tools across
the joint environment.
COMISAF's Counterinsurgency (COIN) Contracting Guidance states that commanders must know
what contracting activity is occurring in their battlespace and who benefits from those contracts.
Contracting and procurement needs to reinforce rather than detract from mission objectives.
Contracting information needs to be integrated into intelligence, plans, and operations to exert
positive influence and to better accomplish campaign objectives. Commanders should use COIN
Contracting Management Boards to coordinate contracting efforts and ensure contracts support
campaign goals. Commanders and contracting agencies should share best practices, align policies
and procedures, and exchange information on contractor performance-positive or negative.
This situational awareness of the acquisition process will be provided through a role-based/process
dashboard in which the Warfighter and other stakeholders are provided with visibility, traceability
and active control of the acquisition enterprise.
Users can view the status of an acquisition through the CBE dashboard by using an internet-
connected computer to help them with order management. Management and planning will have real
time access to the status and detailed information about acquisitions through similar role-based
configurations of the CBE dashboard. This data can be used to assist commanders, Warfighters,
and all of the associated contract support personnel with requirements planning, development and
tracking for improving Operational Contracting Support (OCS) planning. In addition, senior leaders
and auditors will have visibility and traceability of the process through the CBE dashboard to ensure
the responsible expenditure of funds.
3.7 Spiral Development
This CONOPS does not describe an execution framework. Instead it describes a strategy for
Contingency Business Environment CONOPS DPAP December 20, 2010
22
achieving interoperability when inserting technology and e-business tools into the contingency
environment. However, it is critical that the new tools meet user needs and provide operations
efficiencies while improving mission effectiveness. DoD will use evolutionary acquisition/spiral
development techniques to get new tools into the hands of the Warfighter and contracting personnel
more quickly and maximize the use of user feedback in refining requirements and developing
subsequent increments of capability. New tools will be pilot tested in operating units and refined
prior to limited deployment to selected units, followed by full deployment of proven technology.
3.8 Milestones
Each of the tools in the suite has individual development and deployment milestones, which are
identified at the end of each tool’s description in the appendices. The overall goal is to have an
initial tool kit containing the spiral one application of mission critical systems ready for deployment
in the Third Quarter of FY11.
4 Contingency Business Operations Manager (cBOM)
Realization of the goal of providing a simple, seamless, pre-award, award, and post-award acquisition
toolkit to support the end-to-end contingency business process across multiple domains will require
a Contingency Business Operations Manager that coordinates joint business systems implementation
across a contingency area of operation. The cBOM should be a function of the Joint Staff as the
primary responsibility will be to act as an advocate for the business community to the operational
commander or COCOM responsible for:
? Coordinating communications and backbone needs on behalf of the finance, logistics and
acquisition communities supporting the warfighter.
? Coordinating use of joint business tools in a specific contingency environment to include:
• Tracking and census of contractors
• Determining requirements, allocating funds to requirements, issuing contracts;
confirming contract deliverables and performance; enabling contract payment
• Tracking cash management
• Issuing and managing logical and physical access to DoD by contractors
The cBOM will also be responsible for coordinating with JCASO to ensure planning of joint
business needs are coordinated with the operational commanders intent for contingency operations.
While this Concept of Operations identifies a number of processes to be supported and potential
solutions that may be deployed, some of these solutions have multiple constraints that must be
considered and addressed. These include:
? Diversity of the contingency environments in which the technology must operate. Tools in
the suite must operate in environments with limited bandwidth, intermittent connectivity
and high latency.
? Ability of the DoD to adapt and enforce clear, enterprise-wide data standards across its
business systems. The objective of a seamless suite of applications that do not require
Contingency Business Environment CONOPS DPAP December 20, 2010
23
multiple entries of the same data into different systems will remain elusive if the DoD fails
to enforce acquisition data standards.
? The development of electronic interfaces between the business and legacy financial systems.
? Automating data input and validation and minimizing the need for redundant manual data
entry to ensure information integrity.
? The development of a contract writing tool with a small footprint. It must operate using
standard data provided from a requirements generating tool, with a financial feed so that
routing of both the requirement and funding line is supported and can serve as a source
document for contract execution, administration and payment.
In order to address these challenges, it is paramount that a comprehensive implementation plan be
devised and adhered to as a means of mitigating the risks associated with these challenges and the
sometimes austere physical and operational conditions found in the contingency environment. While
this CONOPS attempts to address immediate concerns in the Contingency Business Environment,
no two contingencies are alike. The solutions proposed here are intended to provide near-term
relief to the Warfighters’ business needs in multiple contingencies and are an interim response until a
systematic, end-to-end solution may be developed and deployed. As an interim solution set, it is
important that the cBOM develop an implementation plan that will enhance our ability to modify
and deploy follow-on solutions with minimal operational impact to the Warfighters.
At a minimum, the implementation plan should incorporate field testing plans to evaluate actual
system performance in a variety of contingency environments and should address:
? Definition of system end user, owners, and their required capabilities
? Definition of stakeholders
? Specific Service component stakeholders
? Programmatic business system stakeholders
? Delineation of responsibilities for technical support
? Delineation of responsibilities for systems integration
? Mapping of System Functions to End to End Business Process
? Data standards
? Physical locations of equipment
? Connectivity requirements
? Service Oriented Approach vs System Deployment Approach
? Bandwidth requirements for each system down to the end user Communications equipment
required Addresses
? Expeditionary Contingency Contracting governing directives
? Training and Support
An effective implementation plan will comply with accepted contingency contracting guidelines and
will have its underpinning in the Gansler Commission findings. In line with that report, the
implementation plan must be sensitive to end user workload, address training plans that enhance the
business environment's resiliency toward fraud, waste and abuse, and it must not increase the
complexity of the technical operating environment or processes without a commensurate increase in
capability to the end user.
Contingency Business Environment CONOPS DPAP December 20, 2010
24
The CBE CONOPS will require careful monitoring and adjustments as necessary during
execution. The implementation plan—which will identify the sequence in which the projects
should be undertaken and describes key aspects of each project—will help bridge the gap
between where the CBE systems are today and where they need to be to support future
contingencies. The numerous development projects required to implement the CBE CONOPS
vary in complexity, but are interrelated. Therefore, the CBE should be treated as a program,
operating with consistent oversight and management toward implementation. This program
should be viewed as a shared effort among the domains providing business support to the
warfighter. Thus, one of the initial steps will be to develop the implementation plan, objectives,
and milestones.
5 Governance
Acquisition, procurement, logistics and finance communities own the processes involved in
contingency acquisition and must contribute to resolving the problems outlined in the CONOPS.
Some of the inefficiencies experienced in a contingency are due to the current stove-piped nature of
processes and systems used by these four domains. Moving to the desired future state will require
collaboration in a seamless, integrated process across the domains. Figure 4 illustrates the process as
an acquisition moves multiple times through multiple domains and systems.
Financial Management
2132020.00000 5X-6X20 123456.00000 662G
25POLI P68EY78945J123 POLI25 123456
Lines of Accounting
2132020.00000 5X-6X20 123456.00000 662G
25POLI P68EY78945J145 POLI25 123456
DoD Budget
Submission
Appropriations
Total Government Contractor Total Government Contractor
14-Aug-00 60 60 - 100 100 - 16-Oct-00 118 118 - 955 955 - 1-Nov-00 165 165 - 1,160 1,160 - 1-Dec-00 246 246 - 1,631 1,631 - 21-Dec-00 543 310 233 1,721 1,721 - 25-Jan-01 840 449 391 2,900 2,900 - 5-Feb-01 941 465 476 3,624 3,624 - 1-Mar-01 1,225 549 676 6,928 6,050 878 29-Mar-01 1,504 678 826 9,827 8,787 1,040 4-May-01 1,766 800 966 11,504 10,328 1,176 11-Jun-01 2,130 890 1,240 13,000 11,648 1,352 6-Jul-01 2,326 979 1,347 14,356 12,864 1,492 3-Aug-01 2,757 1,056 1,701 16,234 14,536 1,698 31-Aug-01 3,136 1,083 2,053 18,199 16,182 2,017 5-Oct-01 3,595 1,150 2,445 19,902 17,357 2,545 2-Nov-01 3,985 1,214 2,771 21,558 18,791 2,767 7-Dec-01 4,481 1,265 3,216 23,373 20,245 3,128 4-Jan-02 4,695 1,237 3,458 24,122 20,840 3,282 1-Feb-02 5,109 1,212 3,897 25,964 22,232 3,732 1-Mar-02 5,515 1,216 4,299 29,541 25,626 3,915 5-Apr-02 6,132 1,325 4,807 32,652 28,392 4,260
Users Assessments Retrieved
Commitment
Total Government Contractor Total Government Contractor
14-Aug-00 60 60 - 100 100 - 16-Oct-00 118 118 - 955 955 - 1-Nov-00 165 165 - 1,160 1,160 - 1-Dec-00 246 246 - 1,631 1,631 - 21-Dec-00 543 310 233 1,721 1,721 - 25-Jan-01 840 449 391 2,900 2,900 - 5-Feb-01 941 465 476 3,624 3,624 - 1-Mar-01 1,225 549 676 6,928 6,050 878 29-Mar-01 1,504 678 826 9,827 8,787 1,040 4-May-01 1,766 800 966 11,504 10,328 1,176 11-Jun-01 2,130 890 1,240 13,000 11,648 1,352 6-Jul-01 2,326 979 1,347 14,356 12,864 1,492 3-Aug-01 2,757 1,056 1,701 16,234 14,536 1,698 31-Aug-01 3,136 1,083 2,053 18,199 16,182 2,017 5-Oct-01 3,595 1,150 2,445 19,902 17,357 2,545 2-Nov-01 3,985 1,214 2,771 21,558 18,791 2,767 7-Dec-01 4,481 1,265 3,216 23,373 20,245 3,128 4-Jan-02 4,695 1,237 3,458 24,122 20,840 3,282 1-Feb-02 5,109 1,212 3,897 25,964 22,232 3,732 1-Mar-02 5,515 1,216 4,299 29,541 25,626 3,915 5-Apr-02 6,132 1,325 4,807 32,652 28,392 4,260
Users Assessments Retrieved
Obligation
Expenditure
Property, Logistics,
and Transportation
Requirement
Contract
Need
Inspection
Delivered Property
Acceptance
Line Item
Requisition
Shipping Notice
Transportation
Receiving
Property Log
Acquisition Process
Acquisition
AAI
IUID/RPUID
Contract #
&CLIN &
SPIIN
Figure 4 – Acquisition Process through Multiple Domains
Contingency Business Environment CONOPS DPAP December 20, 2010
25
5.1 Stakeholders
Combatant Commanders are the primary stakeholders in the deployment of acquisition tools for the
contingency environment. They require the acquisition of supplies and services in their AORs to be
streamlined, simplified, and expedited. The Joint Contingency Acquisition Support Office (JCASO),
which DoD established to develop joint policies that provide for a ?preplanned organizational
approach to program management? for contractors authorized to accompany the force is a critical
stakeholder for ensuring that the success of the CBE acquisition CONOPS. JCASO advances
acquisition management of Operational Contract Support (OCS) for planning, exercises and
training; and when requested by a Combatant Commander (CCDR) during contingencies, JCASO
deploys as an enabling joint staff organization to augment the CCDR staff for OCS support.
Beyond that, every entity involved in contingency acquisitions is a stakeholder in the success of these
tools, especially those charged with providing contracting support to the Warfighter. This includes
all contractors and vendors who ultimately receive contracts, deliver supplies and services, and
receive payment from DoD have an interest in seeing this process improved.
5.2 Users
The primary users of these tools are the Warfighters who require and must be aware of the
requirements and sources of supplies and services in the AOR and the Contingency Contracting
Officers who execute the procurements to fill those requirements. Secondary users include all
participants in the end-to-end process.
5.3 Functional Sponsors
Functional sponsors within the four domains; acquisition, procurement, logistics, and finance, are
responsible for identifying the specific requirements and the resources necessary for developing
systems to meet those requirements in a contingency operation.
5.4 Governance Structure
Key to the success of implementing a contingency toolset is involvement by the four domains
named above, as well as the active involvement of operational entities (combatant commands). At
both the executive level and working group level, these communities must be full participants in
identifying and resolving problem areas.
Contingency Business Environment CONOPS DPAP December 20, 2010
26
Figure 5 –Contingency Business Environment Governance Structure
5.4.1. Contiingency Business Environment Steering Committee
The steering committee will be responsible for timely and cost efficient implementation of CBE
business capabilities and translating DoD business strategies, policies, and procedures into a
coherent CBE strategy and implementation plan. In addition, this group will develop and ensure
resourcing for required information technology support as part of a broader information technology
portfolio. The steering committee should include senior representatives from:
? Under Secretary of Defense (Acquisition, Technology and Logistics)
o Defense Procurement and Acquisition Policy (DPAP), Chair
? Defense Contract Management Agency (DCMA)
o Defense Acquisition Resources and Analysis (DARA)
o Logistics and Material Readiness (LM&R)
? Defense Logistics Agency (DLA)
? Under Secretary of Defense (Comptroller)
o Deputy Chief Financial Officer (DCFO)
? Defense Contract Audit Agency (DCAA)
? Deputy Chief Management Officer (DCMO)
o Business Transformation Agency (BTA)
? Military Services:
Contingency Business Environment CONOPS DPAP December 20, 2010
27
o Joint Staff (J4 – Logistics, J6 – C4; J8 - Force Structure)
o Defense Logistics Agency (DLA)
o Army
o Navy
o Air Force
o Marines
5.4.2. Contingency Business Environment Working Groups
The Contingency Business Environment Working Groups will be the working-level bodies,
reporting to and advising the steering committee. The working groups will be responsible for
providing subject matter experts to conduct in-depth review, analysis, and resolution of technical,
procedural, and policy issues related to implementation of the CBE toolset. They will provide
recommendations to the steering committee based on their findings.
Membership should include worker-level individuals from the communities represented on the
steering committee: DPAP, DARA, LM&R, BTA, and DCFO. Membership should include
Combatant Command representatives and DLA to provide Warfighter requirements and Joint Staff
representatives to provide additional functional expertise. From the Joint Staff, especially critical is
participation by J4 (Logistics), J6 (Communications), and J8 (Force Structure, Resources, and
Assessment).
The responsibilities of the working groups should include:
? Identifying functional and technical strategic capabilities/activities that should be
standardized enterprise-wide capabilities across the acquisition portfolio and decide when
needs justify exceptions to these standard capabilities/activities
? Establishing a data strategy for the identified enterprise acquisition assistance processes
? Determining the enterprise level resources required to support the enterprise strategy and
implementation plans in the context of the overall portfolio
? Representing needed enterprise level resource requirements to the CBE Steering Committee
? Establishing measurable business objectives and associated metrics in a strategy
implementation plan
? Communicating and implement decisions within respective represented community
? Conducting appropriate change management efforts within respective organizations
? Supporting authority and responsibility of the change control boards in the CBE
? Acting as final decision authority for issues requiring arbitration from the change control
boards in the CBE
? Establishing and maintain requirements groups /change control boards (CCBs) for the
capabilities and systems in the CBE
Three working groups are required to address specific challenges:
5.4.2.1. Backbone Infrastructure Working Group
This working group will define the requirements for the backbone systems required for the CBE
suite of tools to operate.
Contingency Business Environment CONOPS DPAP December 20, 2010
28
5.4.2.2. Communications and Bandwidth Working Group
This working group will define the communications and bandwidth requirements for the CBE
CONOPS. This will require identifying the communications needs of each application, and defining
the overall communications needs for the CBE CONOPS in each phase of an operation.
5.4.2.3. Process and Applications Working Group
This working group will define processes that will be used in each phase of an operation, and the
systems applications that will support those processes.
6 Summary and Conclusion
Contract support in the contingency environment is a combat multiplier and critical factor on the
battlefield. Due to the nature of the current manual operations which comprise the procurement
process, the speed of the acquisition process does not keep pace with the Unit Commander’s
combat needs. Adoption of the unified e-business tool suite identified in this Concept of
Operations will improve the efficiency, effectiveness, traceability and accountability of the
contingency procurement process.
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendices - Introduction
The Gansler Commission indicated that ?information systems to track contractor personnel, assets,
and performance are critical but lacking. Commanders need a common, relevant picture of
contractors in the battle space, for operational planning, logistics planning, and situational
awareness.? This ability does not exist today because of the generation of software tools that are
available. Functional experts generally create tools that apply only to their area of control. These
tools tend to be natural stovepipes of information and are poorly integrated with other ancillary
functions. Today, users must log into numerous systems, extract data, and then transform that data
into useful information. This process can be eliminated applying the principles of net-centric
planning and intelligent use of service oriented architectures.
The CBE CONOPS uses a dashboard that, as an interim solution for rapid deployment, integrates
data from disparate solutions and presents that data through a user-configurable portal. This
solution has nominally been designated the Joint Contingency Acquisition Management System
(JCAMS). It will reside on the backbone of what currently is JCCS, a tool originally designed to
capture and manage contingency contract data. JCCS has already been expanded to include a
contract writing capability for use in austere environments, supplier relationship management tools
(see Appendix F), Acquisition Cross-Servicing Agreements (ACSA) tracking and reporting (see
Appendix E), and the 3in1 Field Ordering Receipt and Payment Tool (see Appendix D).
All CBE tools should be designed with service orientated architecture in mind in order to make the
tools and data more accessible and discoverable by other DoD activities. JCAMS would access to
each of the CBE tools within a single sign-on environment. JCAMS would be available on the
internet. A desktop instance of JCAMS could also be deployed so that disconnected users could
receive ?snapshots? of information during the time that they have connectivity and can synchronize
with the main JCAMS servers.
JCAMS should provide authorized users the ability to retrieve information related to their activity:
Warfighters reviewing requirement status, resource managers planning for upcoming requirements
or release of funds, contracting leadership monitoring acquisition activity and metrics by region, etc.
The Gansler report also noted that the number and complexity of contracts has increased
significantly, while the supporting workforce has diminished. When participants in the contingency
procurement process need help writing performance work statements, quality assurance surveillance
plans or complex contracts where can they turn for advice? Real-time collaboration tools like the
Army’s Green Force Tracker (GFT) provide a way to integrate reach-back support at the desktop
level. Desktop collaboration tools will be available through JCAMS providing encrypted
communication, with real-time availability of subject matter experts, cross-domain chat integration
via XMPP, file transfer and desktop image sharing. This capability in JCAMS will allow for the
creation of dynamic contact grouping so that contracting support contacts can be separated for
easier identification. This capability facilitates the use of reach-back and reach-forward support for
all acquisition participants.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
JCAMS - Dashboard for with visibility, traceability and active
control of the expeditionary acquisition enterprise
Pre-Solicitation / Pre-Award Solicitation / Award / Post-Award
Finance Requirements Contracts QA/CORs Logistics Collaboration
Reachback
cASM
SRM
DDSS
WAWF
GCC Websites
GCPC
3in1
WAWF COR Tool
JAAR CC Handbook
WAWF SPOT
SPS
Collaboration
GCC Websites
CC Handbook
JAAR AGATRS
IUID Registry EDA
EDA
GEX
SPOT GCPC
Figure 5 – Contingency E-Business Tools in a Common, reusable infrastructure within JCAMS Dashboard.
The intent is to provide a dashboard for the multiple applications outlined in this CONOPS and to
provide access to the underlying data in the contingency e-business system. The dashboard will
provide acquisition data and reports to requiring activities, contingency contracting officers, field
ordering officers, and operational commanders. The chart below identifies the interim tools
identified in the appendices to this CONOPS. As mentioned above, the Acquisition Cross Servicing
Agreement (ACSA) Global Automated Tracking and Reporting System (AGATRS), the Supplier
Relationship Manager (SRM) applications, and the 3in1 Tool have been integrated into the JCCS
dashboard.
The chart below identifies whether the acquisition tool would be able to operate independently in
austere environments with little or no communications connectivity to the Web or the JCAMS
server.
Capability Tool Comms w/o Comms
Message Brokering Backbone GEX Yes Yes
Requirements Generation and Tracking cASM Yes Yes
Purchase Card Management GCPC Yes No
Convenience Check Management Convenience
Check
Yes Yes
FOO and Paying Agent Management 3in1 Yes Yes
Contingency Business Environment CONOPS DPAP December 20, 2010
3
ACSA Order Tracking System AGATRS Yes No
Vendor Outreach & Management SRM Yes No
Contract Writing and Tracking SPS-C Yes Yes
Electronic Document Access EDA Yes No
Receipt & Invoice Management WAWF Yes No
Receive, Store, & Distribute. DDSS Yes Yes
Track and Manage CORs COR Tool Yes Yes
Track Contractor Personnel SPOT Yes Yes
Just-In-Time Tools & Training JCC Handbook Yes Yes
Deployed CCO Feedback Loop JAAR Yes No
Theatre OCS Policy & Procedures GCC Websites Yes No
The chart below, in a format carried throughout this CONOPS, shows that JCAMS as a
procurement dashboard can operate independently on a laptop with little or no communications
connectivity to the Web or the main JCAMS server. This makes the JCAMS platform especially
useful in an initial deployment and buildup phase when communications are limited. The chart
below also shows the planned use and deployment of the JCAMS application in the four phases of a
contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCAMS Yes Yes Yes Yes Yes Yes
Funding Requirements:
Funding requirements for JCAMS have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$ 3.978M $ 4.137M $4.303M $4.475M $4.654M $4.840M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix A Message Brokering Backbone
A. Requirement:
Because of the expected requirement for access information on demand and the need for it to be
actionable, contingency business applications will need to acquire and use more Net-Centric
Enterprise Services (NCES) to enable information sharing by connecting people and systems that
have information (data and services) with those who need information across the Department.
Under this concept, the Warfighter will be able to update the business environment with the current
state of nature and share it with the entire community.
B. Interim Solution - Global Exchange (GEX):
The enforcement mechanism for standard transactions is the Global Exchange (GEX). The GEX
service provides message broker, routing, and mediation services between multiple DoD and
Federal government agencies as well as commercial industry. Formerly known as the Defense
Business Exchange (DEBX), the GEX has been under continuous development since 1996 to serve
as the enterprise service bus for business system integration across DoD and the Federal
community. GEX currently processes over 120 million transactions each month, over 1.6 billion a
year and connects over 7600 sites to approximately 180 information systems.
With GEX as the message brokering hub, the common, reusable infrastructure will leverage DoD's
investment in the new tools. The ability to adopt tools from other Services and allow interfaces with
the common infrastructure presumes GEX will be operating in a contingency.
GEX User Community
DFAS:
FASTDATA
Office of Naval Research
Stars Accounting
Mechanicsburg Telink System
Mechanicsburg STARBAT
Electronic Certifying System (ECS)
ASDOF Ship-Board Ordering System
ITIMP Contract and Obligation Process
IGS
Integrated
Garnishment
System
GEX Map
Interfaces
GTN
Global
Transportation
Network
IUID
Item
Unique
Identifier
MOCAS
Mechanization of
Contract
Administration
Services
SPS
Standard
Procurement
System
DTS
Defense
Travel
System
WAWF
Wide Area
Workflow
-General Electric
-Boeing
-Bank of America
-Federal Express
-Commercial Shippers
-Many others
Industry
DPAS
Defense
Property
Accountability
System
PADDS
Procurement
Automated
Data and Document
System
MCTFS
Marine Corps
Total Force
System
Purchase Card
Powertrack
CCR
Central
Contractor
Registry
BEIS
USAF Security
Assistance Center
IVAN
Intragovernmental
Transactions
BUSOPS
DAASC
Defense Automatic
Addressing System
Center
STANFINS
U. S. Army
Standard
Finance System
EDA
Electronic
Document
Access
DLA
DCMA
GFEBS
= Non-BTA Programs
GEX Core
Services
DEAMS
DAI
Defense
Agencies
Initiative
DIMHRS
SPOT
Synchronized
Pre-deployment
Operational
Tracker
CAMS-ME
Capital Asset
Management
System
Military
Equipment
= HR = Sourcing = Finance
Figure A- 1 – Representation of GEX Users
Acquisition Laptop w/o Phase I Phase II Phase III Phase IV
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Tool Comms Comms Deployment Build-up Sustainment Drawdown
GEX Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for GEX:
Pilot Testing:
Limited Deployment
Full Deployment
D. Funding Requirements:
Funding requirements for GEX have been identified as follows:
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
RDT&E
O&M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix B Requirements Generator
A. Requirement:
The effectiveness of the contracting process is measured by how well the contract satisfies the need
of the customer regardless of the environment. In any environment the ability to generate accurate,
current, and complete requirement descriptions is critical to this success. In a contingency
operations environment, with the increase in urgency of the mission and dangers associated with the
environment, a well defined requirement is even more critical, but frequently elusive. The
Warfighter needs a simple means to identify the requirements for supplies and services, where,
when, and in the quantities needed. They do not have the time to wait for subject matter experts to
help review and define the requirement, prepare needed documentation, and obtain approvals.
Today there are few tools available that assist the Warfighter in accurately articulating their needs.
B. Interim Solution - Contingency Acquisition Support Model (cASM):
The Contingency Acquisition Support Model (cASM) is an easy-to-use, web-based tool that helps
users get their requirements on contract more efficiently. cASM is based on an existing application
used for requirements generation at Hill Air Force Base. The contingency Acquisition Support
Module (cASM) will provide support to requirements generators in contingency operations, which
could be used to fill or bridge the gap that the Gansler Commission identified as critical to
improving contingency contracting. It provides a tool to assist in translating a combatant
commander’s requirement into a procurement package that includes all the required documents and
approvals, a responsive contract statement of work, and any ancillary data or information for
acquisition approval and contract action. cASM will assist by simplifying the process for the
Warfighters, providing templates, populating data, and providing the contracting office with an
approved procurement package that the contracting officer can act upon expeditiously.
cASM is a web-based application that uses information collected through a questionnaire to
automatically generate an initial draft of requirements documents. The draft documents are fully
editable in both the basic text area as well as in the data fields that were automatically completed
using the questionnaire data. If the data in any field filled from the questionnaire is modified while
editing a document, the updated information is automatically propagated throughout all the
documents containing the same information upon check in. Each time a document is modified and
stored, it is tracked by a version control feature that not only tracks the document version number,
but who made which changes in each version. Any previous version of the document can easily be
retrieved at any time to track the date and origin of any document changes. cASM:
Enables data entry once and multiple use of the data
Lists all the documents required and the sequence, based on the acquisition type
Provides the latest version of each document format
The formats and templates are stored in the central repository and are easily updated
Utilizes minimal bandwidth requirements
Automatically generates the initial draft of each document
Integrated Product Team (IPT) members enter the data once via a questionnaire – the
system uses this data many times to generate the documents
Data can be input or edited either through the questionnaire or the document itself
Data edits are propagated where used throughout the acquisition documents and database
Contingency Business Environment CONOPS DPAP December 20, 2010
2
cASM is a data-driven system that will utilize and output data in conformance with the DoD
Procurement Data Standard (PDS).
There currently are no electronic interfaces for cASM and financial systems, requiring manual entry
for financial data. Ultimately a data table could be set up to feed the financial data into cASM via
EDA. This will require a translator for cASM. From preliminary research conducted in support of
the contingency operations community and previous experience with other DoD systems,
attempting to develop an interface from or to cASM would risk sub-optimizing cASM performance
as well as those systems to which cASM would connect. Translators between systems are seen as
the most optimal performance option.
The chart below shows that cASM can operate independently on a laptop with little or no
communications connectivity to the Web or the main JCAMS server. It also shows the planned use
and deployment of cASM as a requirements generator in the four phases of a contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
cASM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for cASM:
Pilot Testing: 4th QTR FY09
Limited Deployment 1st QTR FY10
Full Deployment 3rd QTR FY10
D. Funding Requirements:
Funding requirements for cASM have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$8.800 M $9.500M
$9.700M $9.950M $10.300M $12.900M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix C Purchase Cards & Convenience Checks
A. Requirement:
Warfighters need a quick, simple process for purchasing mission critical supplies and services in a
contingency. Depending on the operational environment, the GCPC can be a key component in the
acquisition toolkit by providing a simplified procurement process for purchases that are less than or
equal to the micro-purchase threshold. (The GCPC is mandatory for these purchases.) Proper use
of the GCPC eliminates procurement lead-time and results in substantial transaction cost savings.
The GCPC also automates the invoice and certification process, which facilitates timely payments
and reduces errors associated with manual entry.
B. Solution - Government Commercial Purchase Card (GCPC) & Convenience Checks:
The Government-wide Commercial Purchase Card Program (GCPC) enables properly authorized
government personnel to buy and pay for supplies and services in support of official government
business. The GCPC is similar in nature to a commercial credit charge card; however, it is a
procurement method for official Government use only by authorized Agency personnel to purchase
supplies and services in support of mission requirements.
Issuance of the GCPC requires web connectivity, after which use of the GCPC in the four phases of
a contingency operation is dependent on web connectivity and acceptance by merchants in the area
of operation. However, as an alternative when connectivity is unavailable, convenience checks may
be used as a substitute. The chart below shows that the GCPC requires Web connectivity, but
convenience checks may be used in environments without connectivity.
Acquisition Tool
Comms
Laptop
w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
GCPC Yes N/A Yes Yes Yes Yes
Convenience Check N/A No No No No No
C. Development Milestones:
Development & Deployment Milestones:
Fully deployed
E. Funding Requirements:
FY11 FY12 FY13 FY14 FY15 FY16
$2.500 M $3.510M
$2.220M $2.260M $2.290M $2.400M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix D Field Ordering and Payment Tool
A. Requirement:
In April 2008, Task Force 849 Team 6, formed in response to the Gansler Report, identified a need
to better control cash on the battlefield and bring a much-needed automated solution to the manual
field ordering process that dates back to 1955. Additionally, the then commander of the Joint
Contracting Command – Iraq/Afghanistan identified a need to have a contingency-wide visibility
into purchases made using SF44s because there is no command-wide visibility, data reporting, or
analysis capabilities for these purchases.
The requirement is for a technology-based solution to record and transfer data used by the Defense
agencies when conducting on-the-spot, over-the-counter, field purchases of supplies and non-
personal services (cash and carry type purchases) in circumstances where use of the GCPC would
generally be appropriate, but is not feasible. Typically, this is expected in a contingency
environment.
Today these purchases are made by Field Ordering Officers (FOOs) using a process that is primarily
manual and may require the FOO and Paying Agent (PA) to be exposed unnecessarily to hostile or
dangerous conditions.
B. Interim Solution – 3in1 (Ordering, Receiving, and Paying) Tool:
A multi-service/agency IPT was formed to investigate the best solution and establish the primary
requirements to address these needs. The purpose of the 3in1 Tool is to apply easy-to-use
technology to record and transfer purchase data used by DoD agencies when conducting field
purchases of supplies and services where use of the Government purchase card is appropriate, but
not feasible.
The 3in1 Tool is technology-based solution to record and transfer purchase data associated with on-
the-spot, over-the-counter, field purchases of supplies and services. Using the new 3in1 Tool, the
FOO will input the necessary data into the 3in1 handheld device and the 3in1 handheld device will
transmit this data to JCAMS. That data will populate the FOO’s Purchase Log in JCAMS.
Necessary review and reconciliation of purchase data by all parties other than the FOO will occur on
a monthly basis through controlled access to JCAMS by appropriate contingency contracting
officers serving in the role as the FOO program managers.
The solution consists of a small lightweight device, the 3in1 Tool that will capture and record
necessary purchase, disbursement, and receiving information, including the user's receipt of goods,
vendor payment, and vendor acknowledgement of payment. The device will automatically transfer
that data to the Expenditure/Purchase Log in JCMAS.
The device will capture purchase, invoice, receiving, and payment information, which will …
Reduce FOO and PA time ?outside the wire? and minimize exposure in the
marketplace.
o The tool will include a simplified ordering system that allows preparation of the
order in advance, pre-populating orders from a shopping list, and the capability
Contingency Business Environment CONOPS DPAP December 20, 2010
2
to re-run an existing order. When the FOO gets to the merchant, quantity and
price on the items may be quickly adjusted if necessary, and the order is then be
completed.
Reduce FOO and PA exposure to travel in hostile areas by reducing trips to various
offices by electronically sharing purchase information for review and clearance by the
Property Book Office, Contracting, Disbursing, and Resource Manager
Reduce errors and increase accountability with electronic record-keeping and
reconciliation,
Provide Commanders bottom-to-top visibility of purchases and near real-time
accountability of expenditures with data mining/report generation capability.
The 3in1 Tool facilitates recording purchases and payments both online and offline. In the off-line
mode, transactions are stored into memory on the device and uploaded to JCCS whenever
commercial wireless telecommunications become available.
In the online mode, purchases are immediately encrypted and transmitted from the 3in1 handheld
device to JCCS via an available commercial wireless telecommunications system.
An alternate configuration for use in austere environments with no wireless or LAN connectivity
will provide the capability to securely transfer data from the 3in1 handheld device via USB port to
an independent personal computer application of JCCS.
Initial provisioning of the 3in1Tools will accomplished in JCCS. Organizations, personnel, and
procurement controls will be established and the assigned FOO and PA will be linked to the device
via JCCS. Each FOO/PA team will be assigned to a specific 3in1 device with exclusive utilization.
Digital Signatures will be used to execute and secure order and payment transactions. Receipt of
goods and vendor payment will be recorded as a digital image of their physical signature on the
device’s screen. Vendor receipts will be recorded via a digital image. As each step of the purchase
transaction is completed the information is locked and all purchase order data and images will be
linked and transmitted to JCCS for review/ reporting/ storage.
Features of the device:
? Maintain a running account of obligations, and remaining funds for each line of accounting
loaded into the device.
? Track and calculate purchases in local currency based on the appropriate exchange rate.
? Provide market research capability by querying prior purchases
? Minimize data entry with prefilled data fields
? Record vendor location by GPS coordinates (as appropriate)
? All wireless communications functions may be disabled when required
? Warning messages will notify the FOO when a purchase control is being violated. The device
will restrict purchases beyond authorized thresholds.
Necessary review and reconciliation of purchase data by the contracting office, disbursing agent,
resource manager and property book office will occur through controlled role-based access to JCCS
and transmitted back to the device when completed.
Contingency Business Environment CONOPS DPAP December 20, 2010
3
Purchase data will be reorganized into reports for use by the FOO, FOO Managers, Paying Agents,
contracting offices, disbursement offices, and commanders.
In the online mode, purchases performed in the field are immediately encrypted and transmitted
from the FOO’s 3in1 handheld device to JCAMS via an available commercial wireless
telecommunications system. The chart below shows that the 3in1 Tool is designed to operate in all
four phases on a contingency operation and in environments with or without Web connectivity.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
3in1 Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the 3in1 Tool:
Pilot Testing: 1
st
QTR FY10
Limited Deployment 1
st
QTR FY11
Full Deployment 2
nd
QTR FY11
D. Funding Requirements:
Funding requirements for the 3in1 Tool have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$4.619 K $3.644M $2.060M $2.060M $2.060M $2.060M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix E Tracking and Reporting Cross- Servicing
Agreements
A. Requirement:
Acquisition Cross-Servicing Agreements (ACSA) are bilateral agreements for the reimbursable
mutual exchange of Logistics Support, Supplies, and Services (LSSS) during exercises, training, or
emergency situations. ACSA establishes reciprocal pricing principles for LSSS acquired from or
transferred to governments of eligible countries. Often this type of transaction results in the return
of the same or similar items and may result in no actual currency transaction taking place. The
support for this type of transaction greatly enhances our relationships and ability to collaborate with
other governments during operations.
ACSA reports are labor intensive with no assurance that all of the data is reported is accurate or
timely. The increased use of ACSA programs to support interoperability with coalition forces during
combat and other military operations, coupled with increased report and auditing requirements,
drive the requirement to leverage automation to enhance both the execution of the program and
ability to oversee its internal process
B. Interim Solution - ACSA Global Automated Tracking and Reporting System (AGATRS):
The ACSA Global Automated Tracking and Reporting System (AGATRS) was developed to
eliminate a paper-based process, without a central repository, for tracking ACSA agreements and
transactions. AGATRS is an orders tracking system capable of tracking ACSA transactions where
the United States is either selling or buying goods. In addition, to the tracking of goods bought or
sold, AGATRS, also tracks the bartering and lending of goods and products with other
governments. The purpose of the AGATRS application is to provide a worldwide, automated
solution supporting the Joint Staff J4, Combatant Commands (COCOMs), the Office of the
Secretary of Defense (OSD), and the Defense Finance Accounting Service (DFAS) to manage
cradle-to-grave tracking of ACSA, Implementing Arrangements (IAs), and the subsequent ACSA
orders for LSSS that are executed under these agreements. ACSA managers validate the data in
AGATRS.
AGATRS gives logisiticians, financial personnel and senior leadership a tool for worldwide ACSA
order visibility. It is not an accounting system but may be used to supplement information required
by or available in record accounting and billing systems thus relating relevant information of the
entire ACSA community
The chart below shows that the AGATRS application can operate in environments with or without
connectivity and may be deployed to support AGATRS in all four phases of a contingency
operation.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
AGATRS
Yes Yes Yes Yes Yes Yes
C. Development Milestones:
Contingency Business Environment CONOPS DPAP December 20, 2010
2
AGATRS is fully integrated as a module in JCCS. It is deployed in CENTCOM and SOCOM and is
available to all COCOMs.
D. Funding Requirements:
Funding requirements for AGATRS have been identified as follows:
N/A (this development is complete)
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix F Supplier Relationship Management (SRM)
A. Requirement:
COMISAF’s 8 September 2010 Counterinsurgency (COIN) Contracting Guidance emphasizes that
purchases made for construction, goods, and services can bolster economic growth, stability, and
goodwill in the Area of Operation. Contracts with local firms that procure local goods and services
generate employment and assist in the development of a sustainable economy. However, contracting
the wrong vendors can unintentionally fuel corruption, finance insurgent organizations, strengthen
criminal patronage networks, and undermine our efforts.
COMISAF’s COIN Contracting Guidance identifies the critical importance of supplier relationship
management and the need to establish systems and standard databases for vetting vendors and
contractors to ensure that contracting does not empower the wrong people or allow the diversion of
funds. We need to know those with whom we are contracting and build relationships with local
businesses and community leaders.
B. Interim Solution - Joint Contingency Contracting System (JCCS):
JCCS is a robust client tool designed to capture and manage contingency contract data to meet three
fundamental SRM objectives:
? support government spend analysis in order to increase the number of opportunities available
and awarded to host-nation vendors;
? provide data that would support a host-nation specific supplier relationship process to
increase host-nation vendor utilization;
? create an ability to provide functionality to help the first two objectives quickly influence
economic conditions in support of the campaign plan.
JCCS provides a bilingual web-based online registry for host-nation vendors, a solicitation posting/
proposal receipt system, and an enterprise process and technology capability to provide leadership
with structured real-time reporting of key contract data. Along with posting contract opportunities
in English (full solicitation) and Arabic (summarized version), and providing information about all
the registered and approved host nation vendors, the JCCS captures vendor proposals, and
documents contract awards. Once an award is made, specific data associated with the contract award
is entered into JCCS, which then provides the key to the information visibility needs of the
command via structured and highly robust web-based reports, and the information is accessible to
geographically dispersed contracting officers. The system provides visibility to receipt of goods,
payment to vendors, and ultimately the close-out of the contract, completing the business process.
The Commander, CENTCOM Contracting Command has identified a critical need for tracking and
reporting information on contractor performance within the AOR. Currently, the Contractor
Performance Assessment Reporting System (CPARS) provides access to a database of contractor
performance assessment reviews (CPAR) that are performed . A CPAR assesses a contractor's
performance and provides a record, both positive and negative, on a given contractor during a
specific period of time. Each assessment is based on objective facts and supported by program and
contract management data, such as cost performance reports, customer comments, quality reviews,
technical interchange meetings, financial solvency assessments, construction/production
Contingency Business Environment CONOPS DPAP December 20, 2010
2
management reviews, contractor operations reviews, functional performance evaluations, and earned
contract incentives.
The JCCS contains a performance information tool that could, if expanded, meet the needs
identified by the CENTCOM Contracting Command. The current functionality contains a 3 point
rating system that may easily be expanded to 5 point system similar to a CPAR rating.
The advantage of this approach is that the JCCS performance information tool is easy to use and
would encourage capturing past performance data with almost no administrative burden. This
capability could quickly be fully functional and usable.
An alternate approach would be to develop and implement into JCCS a contingency application of
the CPARS. CPARS is the DoD system for collecting of contractor Past Performance Information
through a web-enabled application that collects and manages a library of automated contractor
report cards. A report card assesses a contractor’s performance and provides a record on a given
contract for a specific period of time. The advantage of using CPARS is the system promotes report
card consistency, increases data integrity, and motivates improved contractor performance.
CPARS employs an electronic workflow allowing Contracting Officers, Program Managers,
Contracting Officer’s Representatives, Engineers, Integrated Product Teams, and others to evaluate
and rate a contractor’s performance on a given contract for a specified period of time. CPARS also
allows contractors to electronically submit comments regarding the Government’s assessment and
to indicate concurrence or non-concurrence with the overall evaluation. The CPARS process
includes an electronic ?check-and-balance? whereby a senior official reviews each Government-
Contractor disagreement to ensure that the report reflects a fair evaluation.
Currently these two alternatives are being examined to meet the need for past performance
information in contingencies. The chart below shows that this new capability should be able to
support all aspects of a contingency.
JCCS has matured and is available across the phases and full spectrum of contingency operations
environments and can operate during a contingency with limited infrastructure and austere
communications, with its on-line and off-line capabilities for data insertion. The system provides
data for a variety of management processes to include review of vendor past performance, allowing
the posting of host-nation reconstruction solicitations, providing a location for vendors to submit
proposals, tracking historical reconstruction contract data, and allowing oversight of in-theatre
contracts to monitor cost, schedule, performance, and vendor activities. The capabilities may assist
in meeting COMISAF’s 8 September 2010 COIN Guidance to establish systems and standard
databases for vetting vendors and contractors to ensure that contracting does not empower the
wrong people or allow the diversion of funds. The SRM capabilities of JCCS support efforts to
build relationships with local businesses and contract with responsible local firms in a contingency.
In support of SRM, the application facilitates:–
? Publishing contracting opportunities and a means for replying with proposals and responses to
request for quotes electronically;
? Host Nation businesses gaining visibility into local contracting opportunities
? Capturing critical contingency acquisition and vendor data with emphasis on Host Nation
spending
? Visibility into a vetted database of host nation and foreign vendors
Contingency Business Environment CONOPS DPAP December 20, 2010
3
? Approving local suppliers;
? Multi-Language vendor registration and solicitation posting, allowing for proposal submission
from a greater pool of vendors, thereby increasing competition for contracts
JCCS was rapidly adopted by the in-theater contracting and vendor communities and has become a
significant success story for in-theater reconstruction in promoting stability and reform through
economic recovery in a contingency. The customer gained accurate and timely visibility into Host
Nation vendors’ contract activity. JCCS had dramatic growth in its usage in the relatively short-time
since it was first deployed.
The chart below shows that the SRM application of JCCS can operate in environments with or
without connectivity and may be deployed to support SRM in all four phases of a contingency
operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCCS-SRM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
SRM is fully integrated as a module in JCCS. It is deployed in CENTCOM and is available to all
COCOMs.
D. Funding Requirements:
Funding requirements for developing CPPS have been estimated as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$500K $500K 0 0 0 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix G Contract Writing System
A. Requirement:
Contracting officers need a contract writing system while operating in a contingency, regardless of
how austere the environment may be. The system must be able to support the unique legal,
regulatory, and business requirements of Federal and Defense procurement. The system must be
capable of generating appropriate terms and conditions, CLIN and sub-CLIN structures, generating
procurement documents, contract administration including ordering, and standard/optional forms
data capture and generation. The system must also include milestones and workload
assignment/management and procurement data reporting.
B. Interim Solution - the Standard Procurement System (SPS):
The current DoD contract writing system is the Standard Procurement System (SPS). The core
product being deployed by the SPS program in the current AOR is a client-server application known
as Procurement Desktop Defense or ?PD2?, which is a robust contract writing tool. SPS is being
adapted through a translator application to link to logistics and financial systems to enable accurate
tracking and reporting of financial data through the budgeting, requisition, contracting, contract
administration, payment and contract close-out processes. SPS uses SSH Tectia software to encrypt
data between SPS components to reduce the vulnerability of the system
SPS-C provides the same functions as a garrison based SPS instance. In the SPS-C set-up, the client
application and PD2 database are loaded on a single laptop or desktop and contracting can be
performed in a contingency environment in extremely austere environments where network
connectivity is unreliable or nonexistent. Currently SPS has been deployed to JTSCC, and in other
contingency locations. It has been successfully deployed in SOUTHCOM in a scaled down
laptop/local server configuration using CITRIX and is considered a prototype for deploying SPS
into austere environments.
In JTSCC, Regional Contracting Centers (RCCs) are configured with a single SPS-C installation and
a small number of PD2 client machines connecting to it. Each instance of SPS-C has the SPS
Synchronization Utility loaded. The Synchronization Utility allows for synchronization of off-line
created content. The next generation of contract writing capabilities must be able to work in an
contingency environment and support normal acquisition operations at the post, camp and station
level. The tool must be able to work with or without network connectivity--caching secure
transactions locally until a network connection can be made. Synchronization of off-line content
must be automatic and intelligent. Additionally, the next generation of contract capabilities must be
able to easily adapt contingency local business processes.
Business rules, to include FAR, DFAR and service/region/campaign specific DFAR updates must
be embedded in the tool so that contingency contracting officers can focus on fulfilling Warfighter
requirements and not on administrative system updates. The rules should be applied in response to
the CCOs responses to questions – driving the system towards the desired result without having to
direct every aspect of the solicitation or contract creation (similar to popular tax preparation
software). This new system should also be easy to administer locally or remotely; thereby reducing
the need for embedded system support.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
The tool should also assist the CCO and ACO by proactively managing the contract – watching for
key contract dates, payments, invoices, etc. This will reduce the administrative burden of managing
and closing a contract.
The next generation contracting writing system will conform to the Procurement Data Standard
(PDS) to provide the data flow through the systems that support the end-to-end business process.
The chart below shows that this new tool should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
SPS-C Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for SPS-C:
SPS is fully deployed to 22,000 users
SPS-C is deployed in JTSCC
D. Funding Requirements:
Funding requirements for SPS-C have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$21.095M $17.968M
$18.522M $19.178M $19.877M 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix H Electronic Access to Business Documents
A. Requirement:
The data used by the systems and applications in this CONOPS will require transmission to, storage
in, and retrieval from a standard data warehouse that provides systems and authorized users with
secure online access to contracts, contract modifications, and related documents.
B. Interim Solution - Electronic Document Access (EDA):
EDA is a web-accessible system that provides secure online access, storage, and retrieval of standard
procurement data that generates contracts, contract modifications, Government Bills of Lading
(GBLs), Defense Finance and Accounting System (DFAS) Transactions for Others (E110),
vouchers, and Contract Deficiency Reports to authorized users throughout DoD. EDA is designed
to simplify and standardize the methods used to interact with suppliers through the application of
Electronic Business/Electronic Commerce (EB/EC) across the DoD. EDA provides the ability to
post, view and process documents electronically, eliminating the need for paper copies for payment
technicians at DFAS, DoD contracting officers, procurement officers, program and financial
managers, and transportation officers. The benefits derived from EDA include:
? A single-source for timely, accurate information
? Electronic search and retrieval - 24/7 access/retrieval capability
? Increased visibility of all procurement & payment actions
? Reduction in data entry/human error
? Lower postage, handling, retention and document management costs
? Single Integrated solution to support multiple communities
EDA is the backbone for the flow of procurement data and must have connectivity to operate.
Successful deployment of EDA in the earliest phases of an operation will be dependent on
bandwidth and connectivity.
The chart below shows that EDA should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
EDA Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for EDA:
D. Funding Requirements:
Funding requirements for EDA have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$7.435 0
0 0 0 0
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix I Electronic Receipt and Acceptance
A. Requirement:
In the traditional DoD business method, three documents are required to make a payment: the
contract, the receiving report, and the invoice. In a manual paper environment, each of these
documents may arrive at the payment office and be processed separately. Information is then
manually keyed into the payment system. The business process requires that these documents be
entered electronically once and that the data be shared across business systems, eliminating
redundant data entry. This would increase data accuracy and reduce the risk of losing a document.
B. Interim Solution - Wide Area Workflow (WAWF):
Wide Area Work Flow (WAWF) is a DoD-wide application designed to eliminate paper from the
receipts and acceptance process of the DoD contracting lifecycle. The goal of WAWF is to provide
authorized Defense contractors and DoD personnel the ability to electronically create invoices and
receiving reports and access contract related documents. The contract data is available through a
seamless interface with EDA. Contractors have electronic options for submitting invoices and
receiving documents. They can submit documents on the Web, through FTP, or through EDI.
WAWF can also process miscellaneous payments and property transfers.
WAWF supports DoD's efforts to reduce unmatched disbursements in the DoD receipt,
acceptance, entitlement and payment process through data sharing and electronic processing. The
benefits to DoD are global accessibility of documents, reduced need for re-keying, improved data
accuracy, real-time processing, and secure transactions with audit capability. For vendors, benefits
include the capability to electronically submit invoices, reduction of lost or misplaced documents,
and online access to contract payment records.
The Quick Compliance Tool Suite (QCTS) is a Web-based tool that simplifies and expedites legacy
Individual Unique Identification (IUID) markings. The process framework combines QCTS tools
with management functions, enabling organizations to administer IUID marking projects efficiently.
Management functions include a manager overview (dashboard) on which QCTS enables site
managers to see all marking effort progress at their site including marking tasks, label quantities and
status, and the progress of individual marking personnel. The command level marking progress
overview (Dashboard) monitors legacy IUID marking over an entire organization or command. The
progress each unit has made in their individual marking effort is clearly visible and metrics are easily
downloadable. Managers can drill down to any unit below in the command structure Organizations
are stored as a customizable organization chart. Metrics can be pulled from any level in the chart.
Individual units may also be viewed and reported on, providing any level of detail desired.
Marking task management allows a large marking effort to be split into manageable chunks which it
can automatically assign to marking personnel. QCTS also includes a Wizard Interface for managers
to ease use and reduce the need for extensive training. Introducing legacy inventory to be marked
into QCTS is performed as a simple Excel file upload so existing inventory systems do not need to
permit QCTS to connect to them.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
QCTS enforces IUID standards while reading 54 different formats. QCTS includes a series of tools
designed to address unique needs. These include:
? UII registry lookup
? QCTS checks the IUID registry to determine if an item has been registered or not. If
an item has been registered, the user is notified. Duplicate registrations are
prevented.
? IUID data extraction
? QCTS parses scanned IUID labels and extracts the information in them.
? IUID image data extraction
? QCTS can parse and extract IUID information from uploaded photographs and
scanned images of IUID labels.
? IUID raw data string compliance validation
? All IUID labels that are parsed are subjected to numerous validation checks to
ensure they comply with the IUID specification.
? UII compliance validation
? All UIIs (as opposed to raw IUID data extracted from marks) are also checked to
ensure they comply with the IUID specification.
? IUID mark generation
? QCTS is capable of generating IUID marks as downloadable images.
? Item registration
? QCTS is capable of registering items with the IUID registry once they have been
marked.
? IUID Registry XML file validation
? QCTS is capable of validating the format and contents of uploaded XML IUID
Registry files. These files contain information about IUID-enabled items that should
be registered.
The vision for this contingency environment includes developing a laptop function to process
receipts and receiving reports off-line. WAWF is a web-based application; the chart below shows
that WAWF must have connectivity to operate. The infrastructure for vendors to use WAWF will
probably not be available in the earliest phases of a deployment.
The chart below shows that WAWF/QCTS should be able to support all aspects of a contingency.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
WAWF Yes No No Yes Yes Yes
QCTS Yes No Yes Yes Yes Yes
Contingency Business Environment CONOPS DPAP December 20, 2010
3
C. Development Milestones:
The following are the major development & deployment milestones for WAWF::
WAWF is deployed in JTSCC. Vendor enrollment training is being conducted to increase
utilization.
QCTS is deployed in NAVAIR
D. Funding Requirements:
Funding requirements for WAWF/QCTS have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$3.800M $2.800M $2.900M $2.900M $2.980M $3.030M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix J Contingency Distribution System
A. Requirement:
The warfighter requires a standalone distribution system that can be placed at the center of the
action, on carriers, and smaller Defense Logistics Agency (DLA) warehouse locations without the
constraints of requiring constant mainframe connectivity. A rapid mobile distribution warehouse
solution is also required in the case of national emergencies such as supporting victims of a natural
disaster.
DLA maintains the Distribution Standard System (DSS), which supports mission requirements for
receiving, storing, and distribution of supply items to the Warfighter in the field for US military
forces. This legacy system operates on an IBM z/OS mainframe with a DB2 database and CICS.
The requirement for contingencies is a web-accessible, portable, stand-alone version of DSS on a
platform that could be shipped to remote locations where constant connectivity to the mainframe is
not possible. The contingency application must replicate the DSS system, with 100% functionality
intact, with the ability to execute on IBM’s AIX operating system. The contingency copy of DSS
would need to execute the COBOL code generated from the mainframe APS code, which will
remain as the primary production environment.
B. Interim Solution – Deployable Distribution Standard System (DDSS):
DLA completed a successful Proof of Concept for the Deployable DSS in October 2006 and the
functionality was successfully tested using live production data with the Deployable DSS in April of
2007 as part of the Node Management and Deployable Depot Advanced Concept Technology
Demonstration Limited User Exercise at Osan, Korea. It exercised the use of Deployable DSS in
support of a Theater Consolidation and Shipping Point.
DDXX Joint Military Utility Assessment (JMUA) was completed in Okinawa, Japan in April 2008.
It exercised the full capabilities of Deployable DSS and DDXX. The JMUA consisted of inbound air
pallet and sea container sustainment cargo diversions to the TCSP and 400+ National Stock
Number (NSN) lines of inventory placed in the Forward Deployed Warehouse (FDW) to fill
requisitions routed from Okinawa-based Army, Navy, Air Force, and Marine Corps units. This
exercise was a complete success. During the course of the exercise, several additional studies were
produced expanding on the DDXX demonstrated capability. The DLA Office of Operations
Research and Resource Analysis (DORRA) published a Business Case Analysis (BCA) for a FDW
based on the Okinawa, Japan JMUA venue and subsequent establishment of a permanent Okinawa
distribution center. The BCA concluded potential for nearly $4M cost savings over 5 years, a
reduction in military airlift requirements for DLA managed items of approximately 53% (assuming
inventory movement by surface), and average CWT improvement from 19.8 days to 10.8 days for
Okinawa-based units. DORRA also initiated a modeling and simulation effort with results
emphasizing the critical importance of early DDXX deployment to a contingency versus delayed
arrival and subsequent lengthy recovery times.
The Defense Distribution Expeditionary Depot (formerly DDXX) was deployed to Rockhampton,
Australia in support of the Talisman Saber ’09. Talisman Saber is a joint military exercise held in
Shoalwater Bay military training area and includes American and Australian Armed Forces. DDED
provided a Forward Deployed Warehouse (FDW) to fill requisitions from Marine, Air Force, and
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Navy forces participating in the exercise. DDED provided meals ready-to-eat (MRE’s) and other
miscellaneous items for over 10,000 troops thru the duration of the exercise. The deployment of
DDED to support the military exercise was a complete success. Throughout the exercise, timelines,
documentation, and checklists were generated and refined to aide in DDED future deployments.
DDED analysts also utilized the exercise to train DDED personnel on the Humanitarian Aid
Visibility (HAV) module for DSS. The HAV module will be used to support disaster relief efforts in
CONUS and OCONUS deployments. It will improve truck processing times by almost 80% and
provide visibility to inventory for disaster relief support.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
DDSS Yes No Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for DDSS:
October 2006 - Deployable DSS Proof of Concept
April 2007 - NoMaDD ACTD LUE – Osan, Korea
March 2008 – Joint Military User Acceptance – Okinawa, Japan
July 2009 – Talisman Saber Exercise - Rock Hampton, Australia
D. Funding Requirements:
Funding requirements for DDSS have been identified as follows:
(Note: These figures reflect C2 and IT costs associated with supporting four DDSS systems or
capabilities deployed simultaneously – each system includes DSS Mid Tier Server, SATCOM ,
Wireless Technology, and unique distribution/logistics-related IT equipment. It does not include
SATCOM service fees, labor costs (approx. $1M/yr) or non-IT costs (shelters, vehicles, etc.).
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
Procurement
$1.0M
3
rd
Sys
$1.0M
4
th
Sys
$0
$1.0M
Upgrade 1
st
Sys
$1.0M
Upgrade 2
nd
Sys
$1.0M
Upgrade 3
rd
Sys
O&M (non labor) $800K $800K $800K $800K $800K $800K
Contingency Business Environment CONOPS DPAP December 20, 2010
3
Appendix K Oversight of Contractor Stewardship of
Government-Furnished Property
A. Requirement:
Government Furnished Property (GFP) must be reconciled on any Department of Defense (DoD)
contract, including contingency contracts. To accomplish this, it is necessary to capture data on
government equipment and supplies as they are sent to the contractor and allow creation of
summary reports of current GFP on hand.
Although contract property policy and oversight has been the target of significant reform over the
past ten years, there is still room for improvement. To reinforce internal controls over the
accountability for GFP provided to a contractor by a DoD Component, or requisitioned from DoD
Component supply sources by a contractor, the following requirements must be achieved:
All transactions used to transfer property to contractor custody or return property to DoD
custody shall cite a contract number under which the property is or was accountable for
stewardship.
Contractors and the DoD components shall confirm receipt by contract number for property
received.
For contractor requisitions of GFP, the DoD Components shall capture or link to the contract
number under which requisition authority to contractors is granted, and shall reject any
contractor requisitions that are not authorized.
Consistent with FAR 45.201, GFP requirements shall be fully described and listed in an
Attachment in any solicitation and contract to notify the contractor of those items of GFP that
are due-in from the DoD or that are authorized for requisition from a DoD Component supply
source.
GFP transfer transactions and receipts shall be routed to a GFP Hub in the DoD IUID
Registry.
A. Interim Solution DoD IUID Registry and GFP Hub:
The overarching requirements for Government-Furnished Property (GFP) oversight are contained
in DoD Instruction 8320.04, Item Unique Identification (IUID) Standards for Tangible Personal
Property, dated June 16, 2008, which:
(a) establishes the DoD Item Unique Identification (IUID) Registry as the master data
source for GFP and
(b) requires the DoD Components to identify and track GFP through the use of UIIs in
transaction-derived data from electronic business transactions.
For those items that require a Unique Item Identifier (UII), this function is performed by the IUID
Registry. To fully account for all GFP in the possession of contractors, a similar capability is
Contingency Business Environment CONOPS DPAP December 20, 2010
4
required for GFP that does not require or yet have a UII assigned. This category of GFP is referred
to in this document as non-UII’ed GFP items.
An adjunct capability to the DoD IUID Registry, the GFP Hub, has been implemented for tracking
non-UII’ed GFP items, which are commonly managed by their National Stock Number (NSN); this
will meet the needs of the DoD IUID Instruction. Insofar as all such non-UII’ed GFP items come
to a contractor via a shipment notice (either from WAWF or a DoD supply or property system), it is
possible to feed the transactions to the DoD IUID Registry so that contractors could ensure the
material is properly aligned with the custodial contract. Thus, a single paperless view will be created
showing the UII’ed GFP and non-UII’ed GFP.
As depicted in Figure R-1, non-UII’ed NSN transactions can be intercepted via a data feed from the
Defense Automatic Addressing Systems Center (DAASC) from the DoDAAC that receives the
property via the X12 527R, Document Identifier DRA; Materiel Receipt Acknowledgement. This
data feed would provide information on the 527R transaction for non-UII’ed GFP to the DoD
IUID Registry.
Figure R-1- Overall Concept and Data Exchanges for GFP Transfers
The chart below shows that the DoD IUID Registry and GFP Hub is useful with or without
connectivity, as GFP reconciliation reports may be completed after the contracting officer has
returned from deployment and connectivity is available. GFP reconciliation by contract number will
provide information to contracting officers that are about to be deployed, and to management,
trainers, and planners in all phases of an operation.
Contingency Business Environment CONOPS DPAP December 20, 2010
5
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
IUID Registry Yes No Yes Yes Yes Yes
B. Development Milestones:
Electronic, or paperless, tracking of non-UII’ed GFP as an adjunct DoD IUID Registry capability
will be accomplished in three phases, described as follows:
Phase 1 will be the baseline system for paperless accountability by contract number for non-
UII’ed GFP items that are requisitioned by a contractor using MILSTRIP requisitions sent
through the Defense Automatic Addressing System Center (DAASC). Completed.
Phase 2 will augment the baseline system by retrieving transfers of non-UII’ed GFP items
conducted using WAWF Property Transfers. ? QTR FY??
Phase 3 will establish Memoranda of Agreement (MOA) with individual Accountable Property
Systems of Record (APSR) to retrieve receipt transactions on non-UII’ed GFP items authorized
by the contract that were under the accountability of the ASPR when they were shipped to a
contractor. . ? QTR FY??
C. Funding Requirements:
Funding requirements for the DoD IUID Registry and GFP Hub have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$3.431M $6.476M $4.798M $4.924M $5.063M $5.207M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix L Management of Contracting Officer
Representative Resources
A. Requirement:
The COR tool is an application that allows the tracking and management of COR nominees, existing
CORs and COR Contract Management. This tool is currently part of the Virtual Contracting
Enterprise (VCE) suite being deployed in the Army, but is in the development stages to be
implemented into the DoD community. Initially, it will be accessed through the Electronic Data
Access (EDA) portal. In the CBE CONOPS it will be accessed through JCAMS.
With this tool, a Contracting Officer (KO) is able to approve/reject/review documents for any of
their contracts and terminate any appointment of a COR provided they are on the COR list. It also
serves as a document repository for document templates such as Appointment Letters, Revocation
Letters, and Quality Assurance (QA) Surveillance Plans. There is also a portfolio report for each
COR that shows the CORs profile, training (detailed), contracts, and status report information
pertaining to the selected COR.
B. Interim Solution - Contracting Officer Representative (COR) Tool:
There is also a CONOPS in development to address the electronic functions that CORs perform
and how these functions tie into the three different levels of CORs. Ultimately, this tool will provide
the capability for Warfighters, logisticians, contracting officers, managers, and the resource managers
to review the post-award status of procurements through visibility into the reports and actions of
CORs.. For supply contracts, this tool could be used to report delivery and acceptance, and for
services contract this tool could be used to monitor contractor performance.
The chart below shows that the COR Tool can operate independently on a laptop with little or no
communications connectivity to the Web or the main JCCS server. It also shows the planned use
and deployment of the COR Tool for tracking and managing CORs in the four phases of a
contingency operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
cASM Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the contingency application
of the COR Tool:
Army Tool is deployed in JTSCC
Initial Joint capability 2
nd
QTR FY10
D. Funding Requirements:
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Funding requirements for the contingency application of the COR Tool has been identified as
follows:
FY11 FY12 FY13 FY14 FY15 FY16
$212K $212K $212K $212K $212K $212K
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix M Oversight and Control of Contractors
A. Requirement:
To address the lack of functional oversight and control of the vast number of contractors who
accompany the U.S. Armed Forces, OSD designated the Synchronized Predeployment and
Operational Tracker (SPOT) as the joint data base for contractor tracking and administrative
accountability in January, 2007. SPOT addresses a concern highlighted in the Gansler Commission
Report when it stated ?Commanders must have timely situational awareness of contracts and
contractor personnel and assets on the battlefield, to properly plan, synchronize operations, and
manage the supply chain.?.
B. Interim Solution - Synchronized Predeployment and Operational Tracker (SPOT):
The SPOT program provides a web-based automated system to track contractor personnel
movements within the forward area and a basis for validating individual contractor personnel
associated with specific contracts, their authorization for access to specific DoD facilities, and their
individual eligibility for specific DoD support services. It also provides for tracking the use of and
accountability for DoD equipment in the custody of contractors. By making available information
on contractor location, training, and capabilities, SPOT improves the ability of the current civilian
and military acquisition workforce to conduct program management activities during combat and
during post-conflict, reconstruction, or other contingency operations
SPOT has proved so successful that the U.S. Congress mandated its use by DoD, DoS, and USAID
for the ongoing operations in Iraq and Afghanistan. Today SPOT is totally integrated into the
operational environment for use as a real-time accountability and visibility system for contractors on
the battlefield, as well as a planning and resourcing tool. See Figure J-1.
SPOT’s vision is to provide authorized users from across the Federal Government with secure
access to historical and near-real-time information that allows insight and the capability to
dynamically effect ongoing operations as well as perform comprehensive analytics of prior activities.
In short, the vision of SPOT is to build upon the established foundation and from that deliver the
right business intelligence information when it is needed, where it is needed. For the Government
user to be successful and make the most efficient use of contractor resources, they must have:
Access to historical and near-real-time contract and contractor status information
Visibility and accountability information for all contractor tasks, Government-furnished
property (GFP) and resources (both available and consumed). System Level Interface
Agreements must enable system to system interface between SPOT and the DoD Item
Unique Identification (IUID) Registry to ensure that GFP issued to contractors and items
received or returned from contractors into the Government inventory are properly
registered in the DoD IUID Registry
1
.
1
The DoD IUID Registry as the master data source for Government Furnished Property (GFP) and therefore must be used to
populate SPOT to ensure accurate and reliable data is entered and that the DOD IUID Registry is updated as a result of the return
of the GFP.
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Access to a state-of-the-art business intelligence toolset to facilitate decision making and
contingency planning
Ability to generate pre-deployment, deployment, and re-deployment plans and documents,
to include a digitized Letter of Authorization to provide for physical access to Government
facilities.
Figure N-1. Conceptual View of SPOT in the Future
The next section describes the functions and capabilities that were incorporated over time to achieve this
vision.
SUMMARY OF CURRENT SPOT FUNCTIONS AND PLANNED FUTURE CAPABILITIES
1. The Tool for Identity and Accountability. The Synchronized Predeployment and Operational Tracker is
a web-based application that provides authorized Government and company users a tool to identify
contractor employees deployed to support contingency operations and ensure they are accounted for;
“visible;” and can be appropriately managed. SPOT is the authoritative source for near real-time reporting
on globally deployed individuals, by name, by location, and by contract.
2. Congressional Direction. In accordance with the National Defense Appropriations Act of FY08, Public
Law 110-181, SPOT is the common database that centralizes all contingency contractor records in a secure
data repository for the DoD, Department of State, and U.S. Agency for International Development. SPOT
standardizes the information collected and presented through interface screens based on assigned user
roles. It uniquely relates the deployed individual with their contract; requiring Government agency; and
current location.
3. SPOT Capabilities. The stored information is used to generate reports on the number of contracts and
capabilities provided, the period of performance, the total number of persons deployed on all contracts,
and how many are associated with each contract. At the detailed level, SPOT reports provide by-name
SPOT Information Integration
JAMMS
CCR
CVS
JPAS
Deployment
Contract
Federal
Agency
Contractor
Personnel
who
Places
Movements
Duty Stations
where
Dates
Arrivals
Departures
when
Contractor
Company
POC
Company Info
Contract Officer
Contract POC
Deployment
Contract
Federal
Agency
Contractor
Personnel
who
Places
Movements
Duty Stations
Places
Movements
Duty Stations
where
Dates
Arrivals
Departures
Dates
Arrivals
Departures
when
Contractor
Company
POC
Company Info
POC
Company Info
Contract Officer
Contract POC
Contract Officer
Contract POC
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Planning
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Planning
Currently Integrated
With SPOT
Currently Integrated
With SPOT
Integration Under
Development
Integration Under
Development
Integration Under
Planning
Integration Under
Planning
SPOT Information Asset
Contractor
Accountability
Mission
Planning
Logistics
Contractor
Company
Integration
Capabilities
.
.
.
Enablers Technologies Processes Standards Infrastructure People Tools
KBR
DMDC
SPOT Information Integration Platform
Integration
Partner
Systems
Integration
Partner
Systems Information
Sources
FPDS-NG
AKO
Identity
Management
Contractor
Registration
Contract
Information
Logistics
Contractor
Company
Identity
Management
Contractor
Registration
Contract
Information
Logistics
Contractor
Company
Authoritative
Data Sources
Letters of
Authorization
CAC
DBIDS
Biometrics
Documents
Reports
~~
Analytics
Contingency Business Environment CONOPS DPAP December 20, 2010
3
historical and current information, including the contract company and contract number, the requiring
Government organization, the contact information of individual deployees and locations to which they
were assigned and/or tracked. SPOT also allows users to pull geospatial reports that associate deployees
or contract capabilities with precise map locations.
4. SPOT’s Federated Operation. Built on a service-oriented architecture (SOA), SPOT is both a consumer
and provider of web services on contracts and contractors. It retains accurate, up-to-date information via
automated solutions rather than manual re-keying of data already available in digital form. Currently
connected to the Defense Manpower Data Center and several contractor company data repositories, SPOT
will make broader use of shared information by increasing the number of SOA links to authoritative data
sources. For example, SPOT will be able to obtain contract records as they are awarded by connecting to
the Joint Contingency Contractor System.
5. Advanced Technology. SPOT was created with a flexible design and open architecture to easily adapt to
new technology so that it can include the best available means of operation, employ advanced methods of
maintaining data, and increase the use of automated connections. By enabling these features, SPOT will
ensure consistent, secure access and accurate reporting to the growing user population and provide
sophisticated business intelligence for analytical reporting. The future vision for SPOT is to expand the
use of SOA and web-services to link contingency contractor and contract information without manual
operations and continue to incorporate technological advances, using best business practices, and
complying with the NDAA, Clinger-Cohen, Privacy Information and Paperwork Reduction Acts.
6. Document Generation. SPOT uses the data repository of collected information to generate Letters of
Authorization (LOA) digitally signed by the appropriate Government agency’s contracting officer.
Authorized SPOT users can then retrieve and print out the LOAs in PDF format. LOAs are supplied to
contingency contractor deployees to be carried and presented as bona fide credentials for physical access
to Government controlled facilities and for obtaining Government furnished services within the area of
operations to which they are assigned. Within the next five years, the Government will leverage the
information that has been collected and standardized through the use of SPOT to automate and
institutionalize additional processes, e.g. generate contingency contractor documents for pre-deployment
screening and training.
7. Analytical Toolset. Contracts are currently in place for the development of a business intelligence toolset
that will re-purpose SPOT’s repository of information to dramatically increase the capability to generate
advanced analytics and metrics, which will enable DoD to expeditiously analyze historical and existing
contracted support to respond to ongoing events and planning for future U.S. operations.
8. NIPR-SPOT and SIPR-SPOT. FY09 contracts are also in place to establish a SIPRNET version of
SPOT that will allow classified items, such as classified contracts and military unit data, to be added. This
capability will enable SIPRNET users worldwide to access the SPOT database to obtain more detailed
knowledge than is available over the NIPRNET.
9. Future Functionality. Additional SPOT capabilities will provide better tools for planning contingency
operations, such as a means to determine the logistics burden on military units and quantify contracted
requirements for operational support. Improved functionality will allow users to track virtual deployees in
a SPOT training database during exercises; this capability will complement the current ability to track
actual deployees in the production database. In addition, the information available through SPOT will
increase significantly as web-service connections with authoritative databases are added, the number of
Contingency Business Environment CONOPS DPAP December 20, 2010
4
tracking stations is increased, and data collection systems are added to enable collection from even more
tracking stations.
10. Support to Broad User Base. As a result of the Congressional mandate to use SPOT and the extent of
information it stores, several federated communities of interest comprise SPOT users:
Government offices responsible for planning and/or reporting the number of friendly forces, including
contractors, working for the U.S. Government in active operations
Combatant Commanders who are responsible for the accountability of persons in their area of
operations and who must therefore have visibility into contractor operations
Agencies and logisticians that plan and execute operations and associated logistics efforts
Business managers who ensure appropriate funding is available and/or evaluate how funds are being
expended
Contracting Officers monitoring active contracts that include deployment to ongoing operations
Government offices with missions that require deployment of contractors, including access by their
Contracting Officer Representatives
Contractors with Government contracts requiring their personnel to deploy
In the future, additional users will include other federal agencies (e.g., DHS, Labor, Justice, and
Agriculture), first responders, and state-level agencies
11. Planned Enhancements. Currently SPOT allows companies to create deployment and LOA requests;
Government agents to authorize contractor deployments; and Government contracting officers to grant
approval by digitally signing LOAs, either singly or in batches. Planned enhancements include the
automated population of contract header information from Government contracting databases and
automated build of contingency contractor records from company human resource databases. As SPOT is
the only application that aligns a deployed contractor with their specific contract, SPOT will use this
information to build associated documents that will simplify and automate the deployment process beyond
current functionality. In the future, SPOT will generate additional contractor forms, which may include
those used during pre-deployment processing at Government or contractor facilities, e.g., training and
medical checklists, generate requests for appropriate clearances, and produce approved clearances in pdf
format.
12. Data Collection. The SPOT Program will expand use of the Joint Asset Movement Management System
(JAMMS) for location tracking at pre-deployment centers and training sites; for documenting arrivals at
Theater Reception Centers; and for recording redeployment processing. SPOT database movement
tracking capabilities will be extended to incorporate movements collected from the Defense Biometric
Identification System, the Biometric Automated Toolset, and the Handheld Interagency Identity Detection
Equipment, as well as from JAMMS, which will significantly expand the number of access and control
points furnishing contractor location tracking data to SPOT. In addition, automated upload functionality
from these tools will be added to better reflect real-time locations in SPOT-generated reports.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
SPOT Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for SPOT:
Contingency Business Environment CONOPS DPAP December 20, 2010
5
SPOT is fully functional
Will replace manual census in 4th QTR FY10
SIPR version deployed in FY11
D. Funding Requirements:
Funding requirements for SPOT have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$ 28.300M $ 2.400M $ 2.400M $ 2.400M $ 2.400M $ 2.400M
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix N Contingency Contracting Tools, Templates
and Training
A. Requirement:
The JCC Handbook is a consolidated source of information in a pocket-sized guide to help CCOs
meet the needs of those whom they are supporting. The Handbook is intended to be used in
conjunction with an enclosed DVD that is also available at the Defense Procurement and
Acquisition Policy (DPAP) Web site. Both the handbook and DVD can be used to train at home
station, and as a source of reference materials and for training while deployed. The handbook and
DVD provide useful tools, templates, checklists, and training exercises which are accessible through
a standard table of contents, links embedded in the text, as well as a Topical Index to assist the CCO
in being effective in any contracting environment.
B. Interim Solution - JCC Handbook Online:
The DVD and Website versions of the Third Edition, which is under development, will have a
process interface as well as the Topical Index. The two interfaces will provide the CCO with ready
access to assistance, reference materials, templates, etc. as they are needed. The content of the
Fourth Edition is also being formatted so that the material may be readily accessible and useable
from a PDA in the future.
The chart below shows that the JCC Handbook is useful with or without connectivity, in all phases
of an operation, because the DVD is provided as a backup to Web availability.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JCC Handbook Yes Yes Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the JCC Handbook:
Second Edition: 3
rd
QTR FY09
Third Edition 3
rd
QTR FY10
Fourth Edition 3
rd
QTR FY11
D. Funding Requirements:
Funding requirements for the JCC Handbook have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
-
$120K - $140K - $160K
Contingency Business Environment CONOPS DPAP December 20, 2010
2
Appendix O Feedback & Lessons Learned
A. Requirement:
Deploying CCOs need access to information about their next duty station while commanders,
planners and policymakers need feedback on what works and what needs to be improved in our
support to CCOs and the Warfighters. The need is for an automated, data driven after-action
reporting system that aggregates information provided by CCOs for subsequent analysis in support
of planning, training, preparation for deployments and policy development.
B. Interim Solution - Joint After Action-Report:
The Joint After-Action Report (JAAR) was developed to provide Deploying CCOs need ready-
access to information about their next duty station from CCOs that have previously been assigned
to that mission. The JAAR will also provide feedback to commanders, planners and policymakers
concerning what is working well and what needs to be improved in our support to CCOs and the
Warfighters. The Joint AAR will be data driven, so that the information provided by CCOs can be
aggregated for subsequent analysis in support of training and policy development.
Within 30 days after redeployment, each CCO is required to complete an electronic after-action
report. After-action reports specifically address:
A formal update of site survey information concerning potential sources of supply to include
items obtained through the U.S. Embassy, host nation support, or servicing U.S. military
installations.
Evaluation of any Host Nation Support Agreement or comparable understanding, Status of
Forces Agreements, if applicable, and the impact of these agreements upon contingency
contracting within the area (applies to overseas contingency).
Problems encountered with the contracting process to include local customs, shortages of
supply within the local economy, local political or diplomatic impediments, language
difficulties, funding, currency exchange rate fluctuations, and security issues or concerns.
Observations on SPOT, Theater Business Clearance, JCAMS, and other acquisition ttools.
Local transportation, billeting, and communication resource availability.
Adequacy of facilities, equipment, and other support provided.
Special personnel requirements (rank, skill level, etc.), contingency kit requirements, or
individual clothing and equipment requirements to meet mission demands in this area.
The chart below shows that the JAAR is useful with or without connectivity, as the report may be
completed after the contracting officer has returned from deployment and connectivity is available.
The JAAR will provide information to contracting officers that are about to be deployed, and to
management, trainers, and planners in all phases of an operation.
Acquisition
Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
JAAR Yes No Yes Yes Yes Yes
C. Development Milestones:
Contingency Business Environment CONOPS DPAP December 20, 2010
3
The following are the major development & deployment milestones for the JAAR:
Pilot Testing: 2
th
QTR FY10
Full Deployment 3
rd
QTR FY10
D. Funding Requirements:
Funding requirements for the JAAR have been identified as follows:
FY11 FY12 FY13 FY14 FY15 FY16
$330K $90K $90K $90K $90K $90K
Contingency Business Environment CONOPS DPAP December 20, 2010
Appendix P GCC Contingency Contracting Websites
A. Requirement:
As means of increasing compliance with contingency operations requirements and, potentially,
the efficiency and effectiveness of contracting operations, DPAP requires commanders of
Geographic Combatant Commands to ensure their Contracting Office(s) maintain a webpage
listing of all prevailing regulations, polices, requirements, host nation laws, orders/FRAGOs,
GCC directives, unique clauses and other considerations necessary for soliciting and awarding
contracts for performance in, or delivery to, that GCC’s AOR. The objective is to establish a
reliable way to get current AOR unique information out to those who will be awarding,
performing or overseeing the execution of contracted support in a GCC’s AOR. Failure to
provide such information may:
Affect the ability of the contractor to execute the contract
Result in unplanned support burdens being placed on the government
Result in violations of GCC/Joint Force Commander directives or host nation laws
B. Interim Solution:
DPAP is working with the GCC’s to develop webpages with standardized organization that provide
one stop shopping for public Operational Contract Support (OCS) content in the GCC’s AOR.
The webpages are tailored to key categories of users:
Contracting offices
Requiring activities/CORs
Contractors
The chart below shows that the GCC Websites require Web connectivity, but are useful in all phases
of an operation.
Acquisition Tool
Comms
Laptop w/o
Comms
Phase I
Deployment
Phase II
Build-up
Phase III
Sustainment
Phase IV
Drawdown
GCC Websites Yes No Yes Yes Yes Yes
C. Development Milestones:
The following are the major development & deployment milestones for the GCC CC Websites:
Initial Website Design 3
rd
QTR FY09
GCC CC Websites Reorganized 1
st
QTR FY10
Updates Completed 3
rd
QTR FY10
D. Funding Requirements:
Funding requirements for the GCC CC Websites have been identified as follows:
Type of Funds FY11 FY12 FY13 FY14 FY15 FY16
RDT&E
O&M
Contingency Business Environment CONOPS DPAP December 20, 2010
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doc_181311281.pdf