Weapon Systems Acquisition: DOD Needs Better Planning to Attain Benefits of Modular Open Systems
Fast Facts
A "modular open systems approach" allows DOD to easily add or replace weapon parts over time—similar to plug-and-play computer parts.
Deciding on this kind of approach early helps DOD save time and money on upgrades and maintenance later. DOD often cited short-term costs as a hurdle to this approach. But it didn't analyze whether those costs outweighed potential long-term benefits like faster upgrades.
Also, DOD doesn't consistently coordinate these types of design decisions across weapon programs—possibly missing opportunities to save money by sharing common parts.
We recommended that DOD improve how it uses modular open systems approaches.
The Army’s Future Long Range Assault Aircraft Is Using a Modular Open System Approach
Highlights
What GAO Found
A modular open systems approach (MOSA) is a strategy that can help the Department of Defense (DOD) design weapon systems that take less time and money to sustain and upgrade. Recent legislation requires acquisition programs to implement a MOSA to the maximum extent practicable. GAO found that 14 of the 20 programs it reviewed reported implementing a MOSA to at least some extent. Other programs cited barriers to doing so, such as added cost and time to conduct related design work. While a MOSA has potential benefits, it may also require programs to conduct additional planning, such as to ensure they address cybersecurity aspects related to a MOSA.
Potential Benefits of a Modular Open Systems Approach
However, none of the 20 programs GAO reviewed conducted a formal analysis of costs and benefits for a MOSA because DOD's policy does not explicitly require one. As GAO reported in March 2020, program officials often focus on reducing acquisition time and costs. Unless required to consider the costs and benefits of a MOSA, officials may overlook long-term MOSA benefits.
Further, most programs did not address all key MOSA planning elements in acquisition documents, in part, because the military departments did not take effective steps to ensure they did so. As a result, programs may not be well-positioned to integrate a MOSA into key investment decisions early in the life of the program. Also, DOD's process for coordinating MOSAs across portfolios does not ensure the level of collaboration needed to achieve potential benefits such as lower costs from using common components across programs.
The military departments are statutorily required to ensure availability of certain resources and expertise related to MOSA implementation. However, they have yet to assess their departments' MOSA needs or determine how resources should be aligned across their respective departments. Until they do this, programs risk having insufficient resources and expertise to achieve the potential benefits of a MOSA.
DOD has updated some acquisition and engineering policies and is drafting regulations and guidance to address MOSAs. But gaps remain that could hinder MOSA implementation. For example, DOD policy does not address how MOSA requirements apply to programs using the middle tier of acquisition pathway—those intending to complete rapid prototyping or fielding in 5 years or less.
Why GAO Did This Study
A MOSA enables weapon programs to better respond to changing threats by allowing them to replace components more easily. Further, a MOSA can help address concerns like high weapon system sustainment costs that GAO has reported on.
House and Senate reports include provisions for GAO to review DOD's use of MOSAs. This report assesses the extent to which (1) programs implemented MOSAs and why; (2) programs and portfolios planned for MOSAs; (3) the military departments invested in necessary resources for MOSAs; and (4) DOD developed policy, regulations, and guidance for MOSAs.
GAO reviewed planning documents for 20 acquisition programs that started after relevant laws were passed in 2016. GAO selected the programs based on their acquisition approach and military service. GAO also reviewed policy and guidance documents and interviewed DOD and military department officials.
Recommendations
GAO is making 14 recommendations to DOD, including that it develop a process to analyze MOSA costs and benefits; improve military department processes for ensuring quality MOSA planning documents and for coordinating MOSA implementation across programs; and address gaps in MOSA policy and guidance. DOD concurred with these recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Defense | The Secretary of Defense should ensure the Under Secretaries of Defense for Acquisition and Sustainment and Research and Engineering, in coordination with the Director, Cost Assessment and Program Evaluation, develop a method for program offices to use when assessing the costs and benefits of pursuing a MOSA on weapon systems. (Recommendation 1) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force | The Secretary of the Air Force should ensure that the Assistant Secretary of the Air Force for Acquisition, Technology & Logistics and the Assistant Secretary of the Air Force for Space Acquisition and Integration identify steps needed during the review of relevant acquisition documentation to effectively determine whether programs have addressed key MOSA planning elements required by statute, policy, and guidance. (Recommendation 2) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army | The Secretary of the Army should ensure that the Assistant Secretary of the Army (Acquisition, Logistics and Technology) identifies steps needed during the review of relevant acquisition documentation to effectively determine whether programs have addressed key MOSA planning elements required by statute, policy, and guidance. (Recommendation 3) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Navy | The Secretary of the Navy should ensure that the Assistant Secretary of the Navy for Research, Development and Acquisition identifies steps needed during the review of relevant acquisition documentation to effectively determine whether programs have addressed key MOSA planning elements required by statute, policy, and guidance. (Recommendation 4) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force | The Secretary of the Air Force should ensure PEOs within the department establish a formal process for coordinating MOSAs across programs to enable portfolio-wide benefits. (Recommendation 5) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army | The Secretary of the Army should ensure PEOs within the department establish a formal process for coordinating MOSAs across programs to enable portfolio-wide benefits. (Recommendation 6) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Navy | The Secretary of the Navy should ensure PEOs within the department establish a formal process for coordinating MOSAs across programs to enable portfolio-wide benefits. (Recommendation 7) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Air Force | The Secretary of the Air Force should identify the resources needed at the military department and program levels to implement a MOSA in all acquisition programs to the maximum extent practicable. (Recommendation 8) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Army | The Secretary of the Army should identify the resources needed at the military department and program levels to implement a MOSA in all acquisition programs to the maximum extent practicable. (Recommendation 9) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of the Navy | The Secretary of the Navy should identify the resources needed at the military department and program levels to implement a MOSA in all acquisition programs to the maximum extent practicable. (Recommendation 10) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of Defense | The Secretary of Defense should ensure that OSD policy governing the MTA pathway provides direction for DOD acquisition programs to implement a MOSA to the maximum extent practicable and addresses related statutory requirements. (Recommendation 11) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
|
| Department of Defense | The Secretary of Defense should ensure that OSD guidance that fully addresses the statutory requirements to facilitate the implementation of a MOSA for any program prototyping, acquiring, or sustaining a new or existing weapon system is issued in an expedient manner. (Recommendation 12) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
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| Department of the Navy | The Secretary of the Navy should ensure that department guidance for acquisition programs provides direction for Navy acquisition programs to implement a MOSA to the maximum extent practicable and addresses all statutory implementation requirements. (Recommendation 13) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
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| Department of the Air Force | The Secretary of the Air Force should ensure that department guidance related to MOSA covers all of the department's acquisition programs and provides appropriate information on MOSA considerations when developing capability documents and conducting analyses of alternatives. (Recommendation 14) |
When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
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