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javelin-1920.jpg.pc-adaptive.1920.medium

[38]Army and Javelin Joint Venture ink 3-year deal valued over $7 billion

Army Futures Command's Software Factory

[39]‘Like Netflix’: After slow start, Army aims to ‘drastically’ accelerate
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[70]‘Like Netflix’: After slow start, Army aims to ‘drastically’ accelerate
software updates

Today, just nine of the Army’s 540 acquisition programs use the streamlined
Software Pathway, but senior officials told Breaking Defense in an exclusive
interview they aim to "exponentially" increase that number by the end of next
year.

By [71]Sydney J. Freedberg Jr. on May 04, 2023 at 11:20 AM
Army Futures Command’s Software Factory

Army Futures Command’s Software Factory operations taking place on
March 22, 2021 in Austin, Texas. (U.S. Army Photo by Mr. Luke J. Allen)

WASHINGTON — After a sluggish start, the Army is slicing through
self-imposed red tape so it can do faster software updates, which are
essential to everything from payroll systems to cybersecurity to
high-tech combat vehicles. The objective: remove a host of obstacles so
the service can make widespread use of the streamlined [72]Software
Acquisition Pathway.

SWP was created in 2020 to [73]bypass ponderous, industrial-age
procurement processes so the Pentagon could roll out new software at
the same pace as the private sector, in weeks or months instead of
years.

“We are embracing the Software Pathway,” said Young Bang, principal
deputy assistant secretary of the Army for acquisition. “We have the
[legal] authorities to do that from Congress.”

But the legal foundation by itself is not enough, Bang emphasized in an
exclusive interview with Breaking Defense. There are plenty of
regulations, bureaucratic processes, and plain old bad habits in the
way.

RELATED: [74]Rapid updates, flexible authorities key for modern combat,
says Army acquisition chief

“There’s been institutional processes have been around for a long time
for the DoD at large and the Army,” he said. “Until you fix all those,
we can’t actually get to agile CICD [[75]Continuous Integration,
Continuous Deployment] releases every two-three weeks like Netflix.”

“We’re working on efforts to change that,” he said.

“There’s a lot of support within the Army and DoD to make that happen,”
added Jennifer Swanson, deputy assistant secretary for data,
engineering, & software, speaking to Breaking Defense alongside Bang.
“I honestly believe by the end of next year, we’ll be in a much better
place. We’ll have a lot more flexibility to do what industry does.”

For 3 Years, Slow Going

Right now, the service’s software stats aren’t that impressive. The
number of Army programs using SWP has grown from one in 2020, when the
pathway was first authorized, to nine — a dramatic increase but still
less than 2 percent of the Army’s 540 programs. Of those nine,
officials told Breaking Defense, four are so new they’re still in the
planning phase and haven’t yet delivered any actual software to users.

Of the five programs that are delivering usable software, just two are
delivering updated code more frequently than once a year. The Army
didn’t provide more specific timelines, but that’s a long way from
commercial-style release cycles measured in weeks.

Besides the nine Army SWP programs, the service has another seven
programs using a separate but similar congressional authority, known as
the Budget Authority 8 (BA-08) [76]software pilot. These seven programs
are all part of a larger Defense Cyber Operations (DCO) effort to shore
up the service’s cybersecurity — an area where rapidly evolving threats
and the ever-changing digital landscape of the internet make swift
updates especially essential.

The DCO programs are technically traditional [77]Major Capability
Acquisitions, subject to an elaborate multi-phase process; but they’ve
been given significant SWP-style flexibility, especially in the
drafting of the formal requirements that their products must meet. So,
while the Army didn’t provide specific metrics on how fast DCO code is
being updated, Young extolled them as “a huge success story.”

There are also streamlined elements within other traditional software
programs, such as IPPS-A, the service’s new [78]Integrated Personnel &
Pay System – Army rolled out in January. Planned upgrades, originally
envisioned as one massive package, will be subdivided into smaller,
more manageable “chunks” that can be developed, tested, and rolled out
much faster, Bang said.

Nevertheless, all these streamlined software efforts added together
still amount to a rounding error within the Army’s roughly $40 billion
annual acquisition budget. Bang, Swanson, and their staffs are striving
to make SWP and SWP-like programs a much bigger piece of how the Army
does business.

While there are just nine SWP programs now, “that number is growing
rapidly,” Swanson said. “Even this year, I honestly would expect it to
close to double” as new programs ask to be on SWP from the beginning
and existing programs ask to transition.

In the slightly longer term, “towards the latter part of ‘24, you’ll
see the numbers drastically improve,” Bang told Breaking Defense. “You
will see… a steady growth and then potentially an exponential growth.”

Several different reforms give Bang and Swanson cause for their
optimism. One, which applies across the Defense Department, is DoD
acquisition chief Bill LaPlante’s August 2022 edict [[79]PDF] allowing
“[80]defense business systems” — such as payroll, contracting, or
installation management — to use the Software Pathway. That
significantly increased the number of programs eligible to escape the
slow, traditional system into SWP.

Within the Army itself, they said, the service is working hard to
streamline the requirements process. Traditionally, that takes years of
[81]horse-trading between bureaucracies to generate hundreds of pages
of rigidly detailed specifications, which then can’t easily be changed
as technology improves, threatens worsen, or users offer feedback. “A
lot of times we develop software which we think is awesome, but people
don’t adopt it or use it,” Bang said.

The Software Pathway, by contrast, allows programs to get underway with
a much less detailed [82]Initial Capabilities Document, setting
broad-strokes requirements that can then be updated, expanded, and
revised repeatedly throughout development. And, Swanson said,
acquisition officials, Army Futures Command, and the service’s Training
& Doctrine Command (TRADOC) are now “working very closely” together to
develop templates and other guidance to give programs a clearer path
through the new process.

RELATED: [83]Pentagon not prepared for software updates at the speed of
war, report finds

‘Software Is Never Done’

Another major bottleneck is testing. Certainly, rigorous, realistic
testing is important: Soldiers don’t want communications networks
crashing mid-combat, any more than they want their guns to jam or tanks
to throw a track. But traditional Pentagon testing is built around
complex, lengthy events that run through every aspect of a system.
That’s workable for hardware, which can’t change rapidly once it’s
approved for fielding, but it’s out of sync with how software updates
work best, which require lots of quick, incremental changes. Most
commercial software companies manage this by automating much of their
testing: They use software to test their software, with algorithms
running new code through routine checks at superhuman speed.

“We’re working with ATEC so we [can] have automated testing,” Bang
said, referring to the independent [84]Army Test & Evaluation Command.
“That’s a huge paradigm shift [and] they’re completely on board.”
Instead of ATEC coming in at the end of a development cycle to manually
retest the entire software package whenever any small change is made,
they would instead get involved from the outset, access the outputs
from the automated testing systems in near-real-time, and save their
skilled human testers’ time for the most important checks.

Figuring out how all this will work in practice is complex and time
consuming, Swanson cautioned. But, she said, “by the end of ’24, we
will definitely have at least some of those software pathway systems
that are able to automate testing.”

Another huge institutional change is how the Army handles what it calls
“sustainment.” A traditional hardware program, like a truck or rifle,
starts out in R&D, builds prototypes, goes through testing, and gets
approved for fielding. Once fielded, the equipment may receive
overhauls or upgrades from time to time, but day to day it’s “in
sustainment” and not expected to change, so it simply needs to be
maintained and kept in working order. These functions are considered so
different the Army actually has separate organizations for them, with
the program managers who developed a new technology at some point
handing it over sustainment officials.

But that hand-off [85]doesn’t work well for software, which requires
constant updates to keep working properly. In effect, the “development”
phase never stops, even after the software is fielded. So, starting in
fiscal year 2024 (which begins Oct. 1, 2023), the Army will no longer
move new software programs out of development into sustainment at all.
Instead, authority of software programs — and the funding that comes
with it — will stay with the same program management office that
oversaw the initial R&D, allowing them to keep updating the code
indefinitely.

“Software is never done,” Bang said. That’s actually a quote
referencing the title of a landmark [86]2019 Defense Innovation Board
study that warned Pentagon software programs moved far too slowly
because “DoD still treats software much like hardware.”

In truth, though, the industrial-age development process doesn’t even
work for hardware anymore, because physical machinery increasingly
depends on software. Even civilian cars now rely on digital tools for
routine maintenance diagnostics, while military vehicles incorporate
high-tech sensors, targeting systems, and even automated anti-missile
defenses.

But while the Software Pathway is built for flexibility, it’s not
flexible enough that you can develop, say, a new tank or an aircraft
carrier just using SWP. So, Bang and Swanson said, the Army is looking
at splitting off the software portion of major weapons programs as a
separate but intertwined acquisition, running rapid updates alongside
the slower hardware development, with software and hardwnare using
different processes.

[87]The service is already trying this on a small scale with its
Robotic Combat Vehicle experiment, where it has contracts with Qinetiq
and Textron to build physical prototypes and a separate contract with
[88]Applied Intuition to build software development and testing tools.

In the longer term, Bang said, it [89]might apply the split approach to
the larger Optionally Manned Fighting Vehicle effort to replace the
Reagan-era M2 Bradley armored troop carrier. Currently, multiple
competitors are building rival prototypes, with each contender building
a complete package of hardware and software. As OMFV matures, however,
Bang said the service expects to split off an SWP to develop software
in parallel to the hardware program.

“We’re looking at embedding multiple pathways within each other…because
software is now embedded in all of our platforms,” Bang said. “As much
as possible, we’re trying to separate hardware from software, and data
from software.”

Recommended

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[93]Trickle down: Army hits 2-year delay in plan to outfit UH-60 Black Hawks
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* Topics: [94]acquisition reform, [95]AFCEA TechNet Cyber 2023,
[96]Army, [97]ASAALT, [98]Jennifer Swanson, [99]software,
[100]Software Pathway SWP, [101]Young Bang

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134. https://breakingdefense.com/2023/05/trickle-down-army-hits-2-year-delay-in-plan-to-outfit-uh-60-black-hawks-with-new-itep-engine/
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