The next step in the SEP, after identifying the needs of the stakeholders, is to standardize kinetic and post-kinetic operational requirements; optimize the CAF’s supply chain, to enable efficient utilization of limited CCO resources in order to provide produce the desired effects for each stakeholder before, during, and after joint contingency operations Figure 10 presents the functional analysis of JEBCES.
Figure 10. JEBCES Functional Analysis (Source: Authors, Poree, Curtis, Morrill and Sherwood)
1. Function A: Standardize
Based on the requirements of both the warfighter and CCOs JEBCES must standardize a high percentage of both kinetic and post-kinetic requirements. This provides a common set of requirements through out all phases of future CPs. This was highlighted in the 2006 JCC-I/A Commander’s Conference when a senior operational commander commented about needing contracting to help us Figure out requirements.
2. Function B: Optimize
In order to optimize the CAF’s supply chain, JEBCES must provide CAF with phase-based demand data. CAF can use this to forecast demand and that can provide DoD with significant savings through economies of scale. In their thesis D’Angelo et al., 2007, propose a strategic approach to contingency contracting, wherein DoD can identify strategic sourcing opportunities.
3. Function C: Utilize
According to Yoder, the current acquisition and contracting community is providing the [CCDR] sub-optimized, ad-hoc contracted theater support (Yoder, 2005). In Figure 11, Yoder explains his model this way:
The Yoder three-tier calls for the cultivation and utilization of senior officers and civilians with sufficient education, joint qualification, multi-discipline DAWIA certifications and other professional qualifications to perform at the highest integrative-planning and execution levels. At the highest level, the Integrative Planner and Executor (IPE) is the essential and critical lynch-pin allowing for the development of a comprehensive Contingency Contracting Support Plan that integrates contracting with the broader theater objectives in the Operation Plan (Yoder, 2004, p. 20).
The Yoder three-tier model recommends employment for contingency contracting officers as listed in Figure 11 below. As described in the “Yoder three-tier model each tier performs unique functions, requires specific
education, developed skill sets, and unique personnel and manpower characteristics” (Yoder, 2004, p. 24). This model maximizes effectiveness and efficiency of theater contingency contracting by assigning the appropriate level of training and experience to the position assigned and will be the catalyst for the CCO utilization rates in Chapter V.
Model Tier Level & Model Title Functions/Education/Rank Highlights and Drawbacks
Ordering Officer – Tier One
• Basic Ordering
• Some simplified acquisitions
• Training: DAU CON 234
• DAWIA Certified CON Level I or II
• Junior to mid-enlisted, junior officers, GS-7 to GS-9 1102 series civilians
• Simple buys
• Little integration
• No operational planning
• No broad liaison functions
Leveraging Contracting Officer – Tier Two
• Leverages to local economy
• Reduces “pushed” material support
• Training/education: DAU CON 234, recommended higher education
• DAWIA Certified CON Level II or III
• Senior enlisted, junior to mid-grade officers, GS-11+ 1102 series civilians
• Better local operational planning
• Some integration
• More capability for the operational commander
• No planned theater integration
• No broad liaison functions
• May perform to optimize local operations at the detriment to theater ops
Integrated Planner and Executor (IPE) – Tier Three
• Highest level of planning and integration – joint
• Linked/integrated with J-4 and J-5
• Creates and executes OPLAN CCO strategy
• Provides direction to tier two and one
• Links operations strategically to Theater objectives of
COCOM
• Education: Master’s degree or higher and, JPME Phase I and II
• DAWIA Certified CON Level III and other DAWIA
disciplines (LOG, ACQ, FIN, etc)
• Senior officers (O-6+), senior civilians, GS-13+ or SES
• Performs operational and theater analysis, integrates results into OPLAN
• Link between COCOM and OPLAN to all theater contracting operations
• Coordinates theater objectives with best approach to contracted support
• Can achieve broader national security goals through effective distribution of national assets
• Includes planning,
communication, coordination, and exercising with NGO and PVO in theater
Figure 11. Yoder Three-tier Model for Contingency Contracting Operations (From: Yoder, 2004)
4. Function D: Rapidly Deployable
Another function of JEBCES is to be rapidly deployable. A major recommendation of the SIGIR Report is to
develop deployable contracting and procurement systems before mobilizing for post-conflict efforts and test that they can effectively be implemented in contingency situations. After reconstruction operations began in Iraq, contracting entities developed ad-hoc operating systems and procedures for monitoring contracts and maintaining contracting and procurement histories; this limited contracting efficiency and led to inconsistent documentation of contracting actions (SIGIR, 2006, p.95).
5. Function E: Transferable
Under the Enable Civil Authority Phase of OIF, JCC-I/A CCOs are embedded with the host nation to coach, mentor, and teach procurement processes. The authors contend a transferable procurement capability would be a viable solution to previous experiences during the 2004 transition to the Interim Iraq Government. Of grave concern for CAF during this period, was the ability of the Interim Iraqi Government to receive and administer contracts under DoD procurement processes.
6. Function F: Knowledge Management
Institutional knowledge of the pre, during, and post operational contracting environment is often lost during CCO turnovers, and is further exacerbated by the service unique dwell-time requirements. For example, U.S. Army CCO have up to a one-year dwell-time requirement, while the AF standard deployment time is six-months. JEBCES must provide a common repository of corporate knowledge regarding market conditions and after action reports.
7. Function G: Flexible
Given the dynamic nature of the operational environment as it relates to kinetic and post-kinetic requirements, JEBCES must absorb variations on the requirements side and the execution side. Moreover, it should expand and contract though out all phases of the CP.
F. DESIGN SYNTHESIS FOR PHASED-BASED ACQUISISTION