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New Career Path Recognizes Global Scope of AcquisitionsBy Duane Tripp and Roy Wood International cooperation in defense acquisition programs is an important but complex undertaking. Done well, international cooperation can help spread the cost and risk of developing complex defense systems across several nations; it can allow access to the best technology worldwide; it can ensure interoperability between allied and coalition warfighters; and it can improve understanding and strengthen ties with U.S. allies. International cooperation, however, requires training in order to navigate a complicated and often confusing web of legal and regulatory requirements and processes. Transfer of defense technology between international partners invokes arms and technology transfers subject to export control laws, and they most often require permission from the U.S. State Department. Sharing dual-use technologies can involve obtaining U.S. Commerce Department approval. Even technical discussions among allies must be covered by appropriate legally binding agreements or other authorizations. How, then, can the defense acquisition workforce navigate the maze of legal and regulatory requirements to support the international cooperation priorities set by our national leadership? What organizational support and training exist to equip the workforce to meet those requirements? The Defense Department’s record suggests we haven’t yet fully overcome these hurdles and realized the goal of achieving robust international cooperation in many of our major programs, but now things are changing. A Missing Requirement The 1990 Defense Acquisition Workforce Improvement Act (DAWIA) required DoD to designate acquisition positions that specifically considered 11 functional areas. Since enactment, DAWIA formal career fields and paths have been identified or have evolved for those functional areas in terms of the education, training, and experience necessary for acquisition career progression. “Joint development and production with other government agencies and foreign countries” is one of the 11 functional areas cited in the law. Within DoD, this functional area is commonly referred to as international acquisition. Unfortunately, for 17 years, no career field or career path was established to address this functional area. The area of international acquisition has subsequently been problematic in regards to establishing education, training, career development, and certification standards. DoD further assigned the military departments the task of managing the people and positions in the defense acquisition workforce to meet DAWIA standards. The military departments and the 4th estate defense acquisition career managers (DACMs) ensure people are trained and certified under the statutory guidelines. Without a career field or path, there was no need to identify what competencies were needed. Without such competencies, there were no clear guidelines on how to design the most effective training. And because there was no career field or path for international acquisition, there was no need for DACMs to manage training. DACMs had no guidance on whom they should manage, or to what standards. This unintended domino effect of problems created barriers to providing the training tools that the international acquisition portion of the defense acquisition workforce needed. Finally in June 2007, the Under Secretary of Defense for Acquisition, Technology and Logistics (USD(AT&L)) directed the development of a new International Acquisition Career Path (IACP). Tailored international competencies within the career fields would be identified and appropriate training developed and deployed. The structure of the career path aligns the complexity of working in the international environment within the context of the acquisition workforce primary functional disciplines. Deployment and Applicability of the IACP As an initial step, the IACP was developed and deployed within the program management career field. The path will eventually supplement other DAWIA functional acquisition career fields. An integrated process team (IPT) identified the appropriate international competencies necessary for program managers to perform effectively within an international program environment, and to develop the training requirements for the new career path option. It should be noted that the program management competencies apply to both the international armaments cooperation as well as the security assistance environments. The IPT included representation from the offices of USD(AT&L), Army, Navy, Air Force, the Missile Defense Agency, the Defense Technology Security Administration, the Defense Security Cooperation Agency, the Defense Institute of Security Assistance Management, and the Defense Acquisition University (DAU). The IPT also forms the core of an ongoing working group supporting the USD(AT&L)’s director for international cooperation, who is the functional leader for the new career path and is responsible for its implementation. Current guidelines require that the international acquisition career path apply to acquisition workforce personnel in the program management career field who provide support to international acquisition programs and technology projects in which more than 50 percent of the work is international-related. International-related applies to:
DAU IACP Training The 2010 DAU catalog, available at http://icatalog.dau.mil, addresses IACP this way: “International Acquisition is a new career path created by the USD(AT&L). Initial execution of the career path began in fiscal year 2009, aligning it with the Program Management career field. Formalizing the career path systematically with the personnel systems enables two important actions. First, specific manpower billets can be coded as international program management positions requiring individuals possessing both core and international acquisition qualifications to fill the respective positions. Second, the existing personnel management infrastructure will record each acquisition workforce member’s achievement toward both core and core-plus certifications. This information will ultimately provide visibility to senior management, enabling them to identify and select appropriately internationally qualified persons to lead international programs.” At Level I, three online training modules are required for core-plus certification:
Level II training for core-plus certification requires the completion of two additional two-hour online modules, and two one-week residency courses:
The two self-paced online modules merely introduce the topics of information exchange programs, and the basics of technology transfer and export control. PMT 202 describes the roles and responsibilities of the acquisition workforce, government agencies, and foreign governments in international cooperative development and security assistance. PMT 203 describes the various laws, policies, and processes for the control of critical program information; national security policy issues; and export/import licensing constraints. To become DAWIA Level III certified in International Program Management, all of the existing training requirements for the program management career field must be met, plus the following unique position training requirements:
Adapting IACP into Other Career Fields The program management IACP is just the first step in addressing international acquisition across DoD. The long-term objective is to assess the competency requirements and training needs within the remaining acquisition career fields and determine, in concert with the career field functional leaders, specifically which career fields would benefit from a tailored IACP. When complete, the expanded IACP will provide improved training and development that will enable and empower the entire acquisition workforce to become more knowledgeable of various processes and to understand the implications for international programs. The direction and structure is in place to implement the new career path, and elements will evolve over time as the needs of international acquisition career path professionals are refined. The international acquisition career path is a step forward in improving acquisition outcomes and meeting the policy intent of greater cooperation with key allies. In the end, effectively sharing the burden and benefits of defense development efforts with international partners will benefit the American taxpayer as well as U.S., allied, and coalition warfighters. Duane “DT” Tripp is a retired U.S. Air Force pilot and acquisition professional; and currently serves as DAU’s International Chair and program director for the International Acquisition Career Path. Roy Wood is the Dean of DAU’s School of Program Managers; and is a former Assistant Deputy Under Secretary of Defense and retired U.S. Navy engineering duty officer. This is an update of an article previously published in the January-February 2009 edition of “Defense AT&L.” The authors welcome comments and questions can be addressed to duane.tripp@dau.mil and/or roy.wood@dau.mil.
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