EL SEGUNDO, Calif. -- The DoD historically has struggled with software acquisitions that meet operational and user requirements on relevant timelines. A culture with rigid processes, a lack of user engagement during development, and resistance to change has resulted in cost overruns, schedule delays, and subpar performance.
The U.S. Space Force (USSF) vision for a digital Service aims to address archaic and outdated modes of fielding capabilities to operators and Warfighters. The ground software acquisition within Evolved Strategic Satellite Communications (ESS) will provide joint Nuclear Command, Control, and Communications (NC3) capabilities for survivable, secure, protected, and jam-resistant strategic satellite communication. That acquisition effort has faced challenges in developing secure code that meets NC3 standard requirements while also ensuring that industry best practices are utilized to reduce fielding risks.
The adoption of agile best practices within the ESS software acquisition represents the steps the USSF is taking to emphasize innovation, Warfighter optimization, and rapid data analysis to ensure space superiority and support the National Defense Strategy.
What is ESS?
The ESS system will provide the primary strategic satellite communications (SATCOM) capability for the NC3 mission in all operational environments. ESS will provide resources for select international partners, as approved by DoD. The system is composed of a Space and Cryptographic Segment and a Ground and User Segment.
The ESS Ground Resilient Integration and Framework for Operational NC3 (GRIFFON) is the Ground Segment and Systems Integration component of ESS. System of Systems Integration (SoSI) is the technical system integration effort to support the government in its role as the lead system integrator between the ground, space, cryptographic, and user terminal components. This ESS system component was created as a direct result of lessons learned from the Overhead Persistent Infrared community to balance out challenges the government historically faced as Lead Integrator.
ESS is a pathfinder and was one of DoD’s first multi-acquisition path programs of record. The dual paths were chosen to deliver next-generation capability faster and with better value to American taxpayers. ESS utilized the Middle Tier of Acquisition (MTA) pathway for rapid prototyping of the space payload, antennas and processors to mature the Technology Readiness Level (TRL); the MTA will transition to a Major Capability Acquisition (MCA) at the conclusion of the ongoing space segment source selection.
An MCA pathway was used for the cryptographic acquisition, in a partnership with the Air Force Life Cycle Management Center’s Command, Control, Communications, Intelligence and Networks Directorate, Cryptographic and Cyber Systems Division. ESS utilized multiple Software Acquisition Pathways authorized by the FY 2020 National Defense Authorization Act for the ground framework and mission applications, as a balance between speed and rigor that prioritizes functioning software and reduces bureaucracy.
ESS also utilizes digital engineering and digital twins to both reduce integration risk and create training and warfighting simulations that will mirror operations. Iterative integration events will reduce integration risk and ensure cyber resilience of all software.
Ground Software Acquisition Strategy
We competed GRIFFON in separate mission-capability segments to promote industry collaboration and best-of-breed vendors for each component. GRIFFON includes the following lines of effort:
- Framework. Modular Open Systems Approach, capable of onboarding and hosting multiple mission applications and services.
- Ground Integration. Ground internal and external interfaces that include but are not limited to Command and Control (C2) terminals, Space Ground Link System, user terminals, key management infrastructure, and common services/ standards.
- SoSI. ESS space-ground-cryptographic terminal integration.
- Mission Applications. Mission Communications Planning, In- Band C2, Out-of-Band C2, testing and training, and any future application needs.
The government’s intent for the Mission Planning Applications Suite is to use modern iterative software development methodologies (e.g., Agile), modern tools and techniques (e.g., DevSecOps and common application programming interfaces), and user-centric design (e.g., automation and intuitive user interfaces). The government also requires solutions that continuously leverage and incorporate relevant commercial technological advancements while simultaneously managing risks against cyberattacks, mission assurance, and resiliency measures.
A typical Space Systems Command operational ground system takes approximately 12 years to begin fielding; ESS will field an operational ground system in under six years. The shortened timelines are a direct result of the Software Acquisition Pathway and the unique prototyping strategy.
ESS Mission Planning Software Application
The GRIFFON suite of applications controls satellites on orbit, monitors space vehicle state of health, and provides communication system planning and monitoring.
The ESS Mission Planning software application provides optimized network and resource allocation across the global constellation for strategic users. It further provides flexible and resilient contingency mission planning, apportions communication bandwidth to support ever-changing operational environments, and allows the president of the United States, national leaders, and international partners to access and control satellite protocol messages.
The ESS Mission Planning software serves as the linchpin of providing critical worldwide strategic on-orbit SATCOM resources and capability in a no-fail mission. On a bad day, the president and national leaders will need the ability to communicate and command nuclear assets, and ESS Mission Planning will ensure that continuity of service.
The competitive prototyping efforts that ESS utilized to acquire and develop the software showcased an approach not previously used for DoD software acquisition on this scale. As a result, ESS was able to drastically shorten fielding timelines and system costs. Conservative estimates show that ESS ground software will deliver user-driven capability twice as fast as an average traditional ground system acquisition.
The Mission Planning Case Study
The ESS Mission Planning software acquisition is unique and has an interesting backstory that developed the innovative approach. As GRIFFON was acquired through several separate competitions, each iterative software acquisition was built on the lessons learned from the previous prototyping competitions.
A key takeaway was that any vendor that bids on a software contract can state that they would use Agile and industry best practices, but many vendors that win competitions on paper-based source selections do not follow through on their proposal promises. To ensure that best-of breed vendors would be chosen for ESS prototyping, it became apparent that we needed a “show us how you build software” approach instead of a “tell us how you will build software” approach to acquiring the ESS ground system.
This concept evolved into an initial software bake-off period prior to awarding any prototyping contracts, so that instead of asking vendors for a lengthy tech volume that would never go into the contract, they would build software in a government-defined scenario and demonstrate it to operators before entering a competitive prototyping phase. The ability to choose vendors based on software coding best practices will ensure that the lowest risk and best value software is developed that meets program performance, schedule, and cost drivers.
The acquisition of the ESS Mission Communications Planning software is divided into three phases beginning with the software bake-off. The Request for Prototype Proposal was released on the Space Enterprise Consortium Other Transaction Authority, which then led to a selection of five vendor teams with a healthy mix of traditional defense vendors, innovative nontraditional businesses, and small businesses.
Phase 1. The government selected five teams to compete in Phase 1, a six-month competitive prototyping demonstration with each team coding to the same software scenario. Phase 1 was intended to evaluate a contractor team’s software development capabilities, processes, and software documentation that showcase industry best practices. This would then allow the government to choose the team(s) that demonstrated they could code software professionally, knew what they were doing, and could hit the ground running upon contract award without a buffer for hiring/ training new software coders.
We added a contract clause that any software coder or essential team member who performed in Phase 1 would be required to participate in follow-on phases. This would ensure that contractors did not rotate in their B or C team after winning the contract with their A Team.
For Phase 1, each performer was provided with an integrated digital environment and test framework at DoD Impact Level 5. The government partnered with Johns Hopkins University Applied Physics Lab to create demonstrations simulating real-world terminals and satellites in simple, complex, and stressed scenarios.
The five contractor teams were each awarded $300,000 to produce a mission planning application using the test framework. They generated scenarios to allow the government to evaluate their software coding practices, technical maturity, and mission area knowledge. Based on demonstrated performance, the government will select up to two participants to continue into Phase 2.
Phase 2. Phase 2 is a 14-month prototyping demonstration. During the 14-month period, the performers will each receive $20 million to demonstrate capabilities at each software release to meet the Mission Planning Applications Suite’s end-user requirements. The government will select one of the two contractor teams based on end user recommendations to continue into Phase 3 and develop the prototype through System Assembly, Integration, and Test.
Phase 3. The Mission Planning Applications Suite prototype at the end of Phase 3 is to deliver a completed and integrated application that has passed not only ESS System milestones but also is operationally accepted by the system’s end users.
Acquisition Done Backwards—a “MUST” for Software
ESS Mission Planning software requirements flowed down from the validated Joint Requirements Oversight Council (JROC) ESS Capability Development Document (CDD) and System Specification.
If the Mission Planning Integrated Product Team followed the standard acquisition process and developed the mission planning software from those CDD requirements, it would have inadvertently developed software from operationally unacceptable stale user requirements. Recognizing that software is best and most effectively developed while working hand in hand with end users, the program office sought out end users and collaborated with them on interpreting the system requirements into software user-interface and back-end capability requirements. This also included a differentiation between functions that could be automated and those that required operators in/on the loop.
The journey began with building a then nonexistent bridge between the acquisition program office and the system users/operators. Conversations involved documenting and understanding operator/user pain points, perspectives, and needs required for the next-generation system.
What began as a contentious and combative first engagement evolved into a strong working relationship with users participating in the entire prototyping and source selection process. Users unaccustomed to being consulted provided the greatest value in choosing the best-of-breed vendors to complete the ESS ground system software that would be operationally accepted faster than typical DoD acquisitions.
The ESS Mission Planning effort began on Oct. 4, 2022, and released the prototype Request for Proposal on May 6, 2024. Over 580 days, the team sat with the operators, testers, and planners, while painstakingly detailing requirements necessary to create an operationally acceptable mission planning software application. The team held hundreds of engagements and touchpoints with the following list of organizations to ensure that the Mission Planning application would not fail:
- Warfighting Integration.
- Sustainment.
- Satellite Operators.
- Test and Evaluation.
- Mission Planners.
- Joint Terminal Program Offices.
- Regional SATCOM Support Center.
- International Partner Support Center.
- Protected Tactical Enterprise Service Program Office.
- Global Positioning System Program Office.
- Space Systems Integration Office.
- Cybersecurity Teams.
In addition to working with operators/ users, the ESS program office sought acquisition advice and lessons-learned from Software Acquisition Pathway experts in the Office of the Secretary of Defense, the Government Accountability Office, successful software programs in DoD, and other organizations. DoD software program managers also had a great deal of insight to offer on the journey of software development. In learning from others’ failures, we at least knew what not to do! And knowing that helped us create our current acquisition path that we anticipate others can imitate as a future DoD best practice.
Requirements driven from both the top-down (JROC CDD) and then the ground-up (user feedback) were critical to avoid developing a system that would be “tossed over the fence” to operators after being developed to stale requirements in an acquisition bubble. Inadequate or poorly developed software leads to systems that do not meet performance expectations and that ultimately compromise mission effectiveness.
Insufficient attention to secure coding practices and testing introduces vulnerabilities to cyberattacks and data breaches. If the application does not meet end user needs, it may not be adopted or used effectively, resulting in wasted resources and continued reliance on outdated systems.
Therefore, the best solution for ensuring successful delivery of software for this no-fail NC3 mission uses the Software Acquisition Pathway to prototype the software, hand in hand with users, and together with a software bake-off that ensures software coding best practices from the selected software vendor.
Why It Matters
The DoD has traditionally purchased software by asking contractors for a written proposal, conducting a technical evaluation, and selecting performers based on the promise of delivering capabilities. But the acquisition of the ESS Mission Planning application shows that the U.S. Space Force emphasizes innovation and industry best practices at the outset. Contractor teams must now show that they have the technical maturation to develop capabilities with the “show, don’t tell” approach.
Legacy contractor teams with mission area knowledge are now challenged by small nontraditional contractors because government teams utilize user feedback to develop and simplify requirements and lower barriers to entry. Contractor proposals for software acquisitions are no longer documents but actual software applications that showcase their capabilities.
Poorly designed software without the user in mind is difficult and costly to maintain over its life cycle, leading to higher long-term costs and technical debt. Suboptimal software hampers day-to-day operations, leading to inefficiencies and reduced mission effectiveness.
The ESS Mission Planning acquisition strategy aims at burning down the inherent risk involved with software acquisition by placing the responsibility on contractors to prove through demonstrated performance their ability to meet the intended end state.
Implementation of agile software practices was crucial in developing the user-driven system. This methodology emphasizes iterative development, continuous user feedback, and robust security measures from the foundation of the software application. By incorporating Agile, the ESS Mission Planning acquisition team quickly adapts to changing requirements and delivers functional software in shorter cycles. Agile practices are included in every step of the acquisition life-cycle process—with testers, integrators, sustainers, operators, and planners all involved during iterative development and deployment.
To implement Agile best practices as part of each contract, the ESS program office deliberately hired and developed Supra Coders within the Ground segment. These government acquisition professionals are trained and steeped in software coding and can write better software requirements and demonstration scenarios, advise on best practices, choose better prototypes, and oversee and test software prototypes.
ESS Chief Engineer Conrad Chong built the entire framework for Phase 1 of Mission Planning prototyping demonstrations over a weekend before handing over the software baseline to our Johns Hopkins partners to build out the prototype demonstration scenario given to Phase 1 defense contractor teams. It became imperative to the success of the program to have government individuals within the program office that were experts in software and Agile best practices.
Conclusion
The ESS Mission Planning software acquisition is emblematic of the Space Force adopting a culture of change and innovation. The team spent years on requirements definitions, incorporated all stakeholders and external organizations, and implemented Agile software development practices before any actual software coding began.
The resulting acquisition strategy requires contractor teams to demonstrate their mission area knowledge, coding best practices, and technical maturation before being awarded contracts. The U.S. Space Force software acquisition of the ESS Mission Planning application demonstrates an uncharted path of innovation and flexibility based on lessons learned, thereby setting a new standard for emerging software technological advancement in the DoD.
Programs need experts in software and agile best practices among their government personnel. Software proposals demonstrated through mission area technical proficiency are the future of U.S. Space Force software acquisition.
This article was originally published in Defense Acquisition magazine.