implementing scaled agile programs in government acquisition … · 2020-01-23 · honda,...

Disclaimer: Contents of this presentation are the speaker’s/author’s personal views

and not necessarily those of the DoD or the United States Air Force.

Implementing Scaled Agile Programs

in Government Acquisition

22 January 2020

Michael P. Cary, PMP, PSMGS-13, DAF

Weapon Planning Software Program Office

AFLCMC/EBDS | Eglin AFB, FL 32542

W: 850.882.0731 C: 850.687.0179

E: [email protected]

mailto:[email protected]



M. Cary BIO

2

• 32+ years in the commercial and defense industries

• Various positions including: Program/Project Manager, technical consultant, systems

engineer, team leader, project engineer, technical trainer, and electrical engineer

• Currently Sr. Systems Engineer for DoD/USAF supporting Joint Mission Planning Systems

specifically for precision guided munitions software at Eglin AFB, FL

• Commercial background (15 yrs.):

• R&D, Systems Integration, Test, QA, QC in Manufacturing and Automation IPTs

• Consulting roles for automotive and electronics manufacturing including: Chrysler,

Honda, Mercedes-Benz, Philips, Panasonic, Viscom in Huntsville, AL

• Sr. Product Manager for BSecure Technologies delivering SaaS products

• Defense/Aerospace background (17+ yrs.):• Technical and acquisition support roles w/ Jacobs Engineering and Odyssey Systems

• Sr. Program Manager within DRS Technologies responsible for new product

development, process improvement, and production of Air Combat Training Systems

• Sr. Program Manager with Odyssey Systems responsible for acquisition support for

Weapon Mission Planning Software development and deliveries for CAF strike aircraft

• Bachelor’s in Electrical Engineering from Auburn University

• Project Management Professional (PMP-Feb ‘09); Professional Scrum Master (PSM- May ‘19)

• 11+ years with PMI Emerald Coast FL Chapter; NWFSC Adjunct/instructor since 2015



Discussion Points

3

DoD’s demand for software and pace of technology

What is Agile and How does it fit with Gov’t Acquisition?

Why consider Agile? DoD & SAF/AQ guidance

Implementing Scaled Agile Framework Environment (SAFe)

PM Challenges in the Gov’t environment

Specific examples and lessons learned


and not necessarily those of the DoD or the United States Air Force.4

DoD’s Demand for Software(Excerpts from 2015 NDIA conf.)

Software (SW) provides the decisive edge to our forces

The SW Engineer is the modern day swordsmith

Critical to future battlefield dominance

SW acquisition poses some of Gov’t toughest challenges

Demand for increased agility for military systems

Adequate systems engineering rigor

Evolving threats, resource demands, tactical innovation

Leveraging of commercial systems/products

Designs that can adapt and adjust (months vs years)

DoD wants more predictable SW delivery

Pace of technology is compounding the challenge

Need for reduced cost & time to meet Warfighter’s needs



DoD’s Demand for Software(Excerpts from 2015 NDIA conf.)

Simply delivering what was initially required on cost and schedule can lead to

failure in achieving our evolving national security mission…the reason defense

acquisition exists in the first place.” --- Frank Kendall Under Secretary of Defense (AT&L) 2015

Future Concerns: 2nd Cone of Uncertainty

Unknowns in competition, technology, organizations, mission priorities

Pace of technology is compounding

the challenge

“…our technological superiority is

slipping…-- Robert Work Deputy SECDEF 2015

Need for reduced cost & time to meet

Warfighter’s needs

DoD wants more predictable SW delivery

while being responsive to change

Image: Future Challenges for Software Data Collection and Analysis, 2009, USC-CSSE



DoD reforming to use

Adaptive Acquisition Framework

6



What is Agile?

7

Agile Manifesto:

Individuals and Interactions OVER Process and Tools

Working Software OVER Comprehensive Docs

Customer Collaboration OVER Contract Negotiations

Responding to Change OVER Following a Detailed Plan

DoD 5000 doctrine does not require a waterfall process

Traditional: The Rqts/Design/Integration/Test cycle are serial events (some overlap)

Agile: The Rqts/Design/Integration/Test cycle are continuous activities (or “sprints”)



Agile in practiceTrends within DoD

8



DoD Acquisition ProcessWhere does Agile fit?

Agile “sweet spot” is during the program’s EMD phase



“Middle Tier” Acquisition

officially now DoDI 5000.80

10

Not under JCIDS nor DOD directive 5000.01

Two pathways: Rapid Prototype or Rapid Fielding

Many Upgrade or Tech Refresh programs can

utilize this acquisition strategy



Why consider Agile?

11

New Paradigm for DoD

• Reqt’s are higher level; refine as s/w

matures

• Agile welcomes change during

development & delivery process

• Agile believes cost of change can be

relatively flat

• Continuous Integration and Testing

ENABLES predictable, consistent

delivery

Reference--http://www.agilenutshell.com/what_is_agile



DoD 5000.02 supports tailoring for Agile/Hybrid SDLC

DoD Acquisition ProcessPredictive & Agile together?

Challenges are getting agreement w/contract

depts. to reduce paperwork, less refined reqt’s,

minimize CDRLS and produce working code and

sign-off reqt’s earlier in the SDLC



Drive to Successful Delivery

13

DoD looking for ANY methodology that can improve Software

Acquisition

“The future of value delivery is a spectrum of approaches—

predictive, iterative, incremental, agile, hybrid, and whatever will

come next to change how we work.” --2018 PMI “Pulse of the Profession: Success

in Disruptive Times”

Examples of USAF programs utilizing Agile providing lessons

learned and case studies (as of Apr 2019):

F-22 Pipeline

F-16 OFP

E-3 OFP

Space & Missile Command (SMC)

JMPS Mission Planning Platforms

B-21

Kessel Run (Automate the ATO process)



Example: Agile/SAFe Use CaseNew/updated capabilities on routine basis

14

WPS resides on JMPS computers Each aircraft has a mission planning environment

to plan PGM missions

Each Aircraft platform performs System

Integration testing Platforms enter into

DT/OT with new weapon

capabilities (via DTDs)

that align w/ OFP releases



Explore Training at:https://www.scaledagile.com/training/calendar

Scaled Agile Framework

Environment (SAFe®)

https://www.scaledagile.com/training/calendar



DoD: Implementing SAFe

WPS Focused on Program and Team

Level Implementation

• Routine collaboration w/Prime

• PI planning over 12 weeks

• Sprint/Iteration = 2 weeks

• Product/Sprint Backlog review

• Product Demos

• Re-prioritization (if needed)



Culture change w/Scrum

and Kanban

17



Mission Planning Quarterly Cadence

(aka Solution Release Train)

PI FY2019 4Q = 07/29/2019 – 10/11/2019

PI FY2020 1Q = 10/14/2019 – 01/17/2020

PI FY2020 2Q = 01/20/2020 – 04/10/2020

PI FY2019 4Q = PIPM (07/23-25/2019); Demo (10/08/2019)

PI FY2020 1Q = PIPM (10/09-10/2019); Demo (01/14/2020)

PI FY2020 2Q = PIPM (01/15-16/2020); Demo (04/07/2020)17

WPS PI planning

events align with

JMPS Enterprise



Scaled Agile Process Implementation(WPS Example: 12 month contract)

Initiate &

PlanningSprint 1 (Month 1)

Sprint 2 (Month 2)

Sprint 3(Month 3)

Q2(Sprints 4-6)

Release

Product

(ER,Beta,

DFQT)

Q3(Sprints 7-9)

Q4(Sprints 10-12)

Release

Final

Product

(FQT)

Requirements

approval

Release Planning

Contract Award

Development

Demo/Retrospective

Sprint Planning (from

Product Backlog)

Informal Testing

(MPEs, 47th TW)

Contractor/Govt

Testing (DT go/no-go)

Operational Testing

(Platform MPE/OFP)

Formal Deliveries

Test ActivitiesContractor ActivitiesGroup Activities Field Ready

MVP MVP MVP MVP

MVCR MVCR



WPS: PI Feature BoardTeam Level: Agile Release Train (ART)

Iteration 2.1

10 Oct-23 Oct

Iteration 2.2

24 Oct- 6 Nov

Iteration 2.3

7 Nov – 20 Nov

Iteration 2.4

21 Nov – 4 Dec

Iteration 2.5

5 Dec – 18 Dec

Iteration 2.6

19 Dec – 1 Jan

Iteration 2.7

1 Jan – 15 Jan

BLU- 134

M-Code as Service

Feature #5

Defects/

Bugs

USN v2.x ER

Defects/

Bugs

Defects/

Bugs

CDRLS

BLU-134

Wpn X

Navy

DFQT

BLU-134

GPS Jamming

Analysis

CDRLS

BLU-134

Wpn X

Navy

Feature #5 ER-2

WPS 2.X

USN

MVP

ER1

BLU

134M-code

2.1.X

2.2.X Beta

CAFMVCR

BLU-134

GFI NAVY

ToolsJSOW

Optional

Cape #3 No

Addl UAI

parameters

need exposed

Risks or

assumptions that

will impact plan

Planned Features

for the PI

DeliverablesDefects/Bugs

CDRLS/

DocumentationTest

Event

Legend

If Capacity Allows

• VLAR

• T2D

• JSF Updates

Innovation

and Planning

Iteration

PI # 3

Planning

2 Day PI Planning event results in

USG prioritized features w/ Deliveries

18



WPS

Sprint 2.1

10-23 Oct431 Hours Capacity Available

Iteration Example in Team Foundation Server

(TFS)—Enables Program Transparency

19



Example: A sprint backlog

Tasks

Code the user interface

Code the middle tier

Test the middle tier

Write online help

Write the foo class

Mon

8

16

8

12

8

Tues

4

12

16

8

Wed Thur

4

11

8

4

Fri

8

8

Add error logging

8

10

16

8

8



Tracking Progress using sprint

burndown chartH

ours



Typical metric: Velocity

24 DRAFT

Velocity is a performance metric that provides team how

much actual work (story points) accomplished in a sprint



What about the IMS?

25

Program Master IMS: Predictive/Waterfall

Compliancy with ACAT I,II,III Regulations• ASP, RFPs, Contract DOs, Transition plans…etc.

• SRR, SFR, PDR, CDR, TRR, PRR…etc. Software Component 1

PM must have dynamic IMS to monitor and

control the triple constraint: Consider Hybrid IMS!

Software Component 2,3,…n

EMD phases: Agile IMS w/details• Sprint tracking Feature/Fixes

• Utilize “subprojects” in MSProject

WPS 8yr IDIQ (2010-2018) Master IMS



USG PM Challenge: JCIDS & DoD 5000.01 compliance

Agile with Acquisition discipline (now DoD 5000.80)

26

Q: How do we get there w/ ACAT Programs?

A: Hybrid solution: Program Lifecycle is

Predictive, while EMD phases are Agile

Traditional/Waterfall Method

Agile or Hybrid Method

Increment 1

July - Sept 2015

Product = Dev Build

Increment 2

Oct – Dec 2015

Product = ER

Increment 3

Jan – Mar 2016

Product = Beta

Increment 4

Apr – Jun 2016

Product = FQT

WPS v5.0 Program Increment Roadmap

Module One

• CASES

• Meeting with Seek Eagle

• Meeting with Boeing

• GPS CC

• Meeting with Won Young

• CASES

• Design\Implement

• Back-end Code refinements

• UAI

• GenerateLAR

• CreateStoreDataSet

• GetMiDef Design

• HTVSF

• Reqs\Design

Module two

• Log file Reqs\Design

• DR’s 109,111,122, 224-258

• JSOW-C

• Initial Stand up

• FOM Weapon Service

• Waypoint Planning

• Transition Point

• NEW Design

• Weapon Card

• DR’s 283 - 295

DO

98

• LRASM

• Initial Stand up


• Waypoint planning

• Geo-zone analysis

• DRs 313 - 344DO

99

Module One

• GPS CC (depending on schedule)

• Verification Testing

• Design for automation

• JDAM, LJDAM, SDB, MOP

WCMD

• HTVSF

• RPT

• Reqs\Design\Implement

• UAI

• GetMiDef

• MP3 Support (Time

permitting)

• RegistrationChangeNotice

• PGMPS from JTM data import

Module two

• JTM Admin data editing (Initial)

• Log File -- open DRs

Module One and Two

• Help

DO

101

• JSOW-C

• ATA Wizard – Open DRs

• Separation Variant coating

• JSOW-C1 (Initial stand up)

• SDB II (Initial stand up)

• NEW DesignDO

98

• LRASM (Funding permitting)

• Geo-zone Design\Impl

• Priority DRs

Module One


• All Weapons

• UAI

• GenerateSDSReport

• CCP development

• MP3 Support (Time

permitting)

Module Two

• JTM Admin data editing

• JTM Duplicate Data Resolution

Module One and Two

• FQT Prep

• Rehearsals

• Regression Testing

• Bug Fixes (Pri 1 & 2 only)

DO

101

• JSOW-C


• JSOW-C1


• SDB II


• NEW DesignDO

98

Module One and Two

• FQT Prep

• Rehearsals

• Regression Testing

• UAI CCP runs

• WPVT runs

• Software Documentation

FUNDING/TIME PERMITTING

• Legacy Import Tool

• PGMPS

• JTM

• WPS next gen

• NEW (Initial stand up)

• Patterns design

• PenCurve

• APM

DO

101

• JSOW-C (Formal Release)

• SDB II (Prototype)

• JSOW-C1 (Prototype)

• Software Documentation

DO

98

Beta Build;

FQT Candidate

DO

101

• GPS Crypto API

• Reqs\Design\Implement

• CONOPS (protected

Memory issue)

• Key handling reqs for labs

(CRITICAL)

• GPS MNAV

• Messages review

• API stub using provided

test data

• Coordinate with SDB-II & JDAM

POC – priority DRs before Beta

DO

100

DO

99

• GPS Crypto API

• CONOPS (protected

Memory issue)

• GPS MNAV

• Design\Implementation

• UAI

• UAI Message

coordination

• Initial design of M-CODE

with UAI

DO

100

Dev Build;

Early PrototypeEng. Build;

Proto #2

FQT final;

Release for

DT/OT

6 Sprints per Increment

(1 Sprint = 2 weeks)



SAFe implementation in DoD:

Lessons Learned

The Government has Unique Challenges Along the Path to Lean-Agile adoption

even with the increased momentum toward Lean-Agile and using SAFe, several

barriers delay widespread adoption. The most frequently cited challenges include:

Poor implementations of Agile in the past, creating a reluctance to try again

Waterfall-centric governance and lifecycle policies that are not easily changed

An acquisition workforce that lacks experience with Agile contracts and Lean

contracting practices

Project orientation, versus continuous-flow-of-value mindset, is deeply engrained

in government culture

Long acquisition lifecycles create tremendous waste and delays in delivering

value

Lack of a common enterprise Lean-Agile framework leads to a limited synergy

between programs

Copyright © Scaled Agile, Inc. Explore Training at:

https://www.scaledagile.com/training/calendar/

25



Using SAFe in Government Acquisition

Summary

29

Demand for software delivery will continue to increase with DoD and as well

as technical complexity

Agile/SAFe model enables key stakeholder collaboration, early and often

product delivery, flexibility with scope changes; BIG culture change!

DoD 5000.80 in Dec 2019 to meet user’s needs in Middle Tier programs

Several DoD programs utilizing Agile like and hybrid approaches embracing

5000.80 reform; Software acquisition model still in work

Variety of materials available to assist PMs with applying Agile to their new

programs/projects:

PMI.org; Review Agile Practice Guide (w/PMBoK 6th Ed.)

DoDI 5000.80 Operation of the Middle Tier of Acquisition (MTA)https://www.esd.whs.mil/Portals/54/Documents/DD/issuances/dodi/500080p.PDF?ver=2019-12-30-095246-043

https://www.esd.whs.mil/Portals/54/Documents/DD/issuances/dodi/500080p.PDF?ver=2019-12-30-095246-043



Agile References (cont)

30

Variety of materials available to assist PMs with applying Agile to their new programs including:

PMI.org; Review Agile Practice Guide (w/PMBoK 6th Ed.)

https://www.agilealliance.org/wp-content/uploads/2017/09/AgilePracticeGuide.pdf

Scaled Agile Framework Environment (SAFe) v5.0

https://www.scaledagileframework.com/

SEI – DoD Software Factbookhttp://resources.sei.cmu.edu/library/assetview.cfm?assetid=453262

DoD Software Sustainment Study Phase 1: DoD’s Software Sustainment Ecosystem: SEI Report#: CMU/SEI-2016-SR-035-restricted

18F – Agile BPAhttps://18f.gsa.gov/what-we-deliver/agile-bpa

Contracting for Agile Software Development Projectshttps://www.twobirds.com/en/sectors/technology-and-communications/software-and-

services/contracting-for-agile-software-development-projects

https://www.agilealliance.org/wp-content/uploads/2017/09/AgilePracticeGuide.pdf

https://www.scaledagileframework.com/

http://resources.sei.cmu.edu/library/assetview.cfm?assetid=453262

https://18f.gsa.gov/what-we-deliver/agile-bpa



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PDU’s for today

31

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Giving/Receiving Feedback

Motivation

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Finance/Budgeting

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Questions

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