Security Cooperation – A Case Study
By Lt. Col. Will McDonough, Robert Ucci, Bill Webber and Ted Greiner
As defense budgets and military force structure are reduced, the United States must once again examine
ways to maintain our defense industrial base. While budgets may not allow for the procurement of new
weapons for our own military at the rate many would like, there can be no question that we need to
maintain the ability to ramp up for a future conflict at a time and a place that may be totally
One very valuable tool for maintaining our domestic industrial base is to promote the sale of our
defense materiel to friendly nations who may very well be allies in the next conflict. On Jan. 3, 2012,
the NATO Training Mission – Afghanistan requested the establishment of a foreign military sales case for
890 M224 60 mm mortar systems for the Afghan National Army (ANA). As is often the case, this initial
requirement was later increased to include more weapons (up to a total of 918) and more accessories,
support equipment and spare parts than originally requested. To put this in perspective, this represents
a quantity that is more than half the total number of 60 mm mortar systems in the entire U.S.
Army [inventory]. The team led by the product manager (PdM) for Precision Guided Munitions and Mortar
Systems (GPM2S) not only delivered all required weapon systems ahead of schedule, but also $11 million
under budget. The last 92 weapon systems were delivered to Afghanistan in Sept. 2013, two months ahead of schedule.
CONTRIBUTORS TO SUCCESS
Upon program initiation, PdM GPM2S formed an integrated product team (IPT) consisting of representatives
from the Watervliet Arsenal, N.Y. (WVA), Anniston Army Depot, Ala. (ANAD), the Defense Logistics Agency (DLA),
the Tank and Automotive Command (TACOM)’s Product Support Integration Directorate (PSID) and Security Assistance
Management Directorate (SAMD), the Maneuver Center of Excellence (MCoE) at Fort Benning, Ga., the U.S. Marine
Corps (USMC), the deputy secretary of the army for defense exports and cooperation (DASA-DEC), and the Office
of the U.S. Army Deputy Chief of Staff, G-8.
The majority of the team members were already familiar with one another each others’ roles and capabilities
because of the normal interaction required by support to Army and USMC units either already deployed or preparing
to deploy to combat operations. The long-standing relationships formed through personal interactions at program
management reviews (PMRs) enabled the rapid formation of a high-performing team without the traditional forming,
storming, and norming phases of team development. While every organization performed a unique and invaluable role,
the leadership role of the PdM as individually responsible for program execution, granted by his charter as a
life-cycle manager, ensured the unity and focus of the entire effort.
In his Feb. 12, 2013 State of the Union Address, President Barack Obama emphasized the strategic importance of
transitioning the United States’ role in Afghanistan from leading the fight to equipping and training Afghan
security forces to take the lead. He stated, “Beyond 2014, America’s commitment to a unified and sovereign
Afghanistan will endure, but the nature of our commitment will change. We are negotiating an agreement with
the Afghan government that focuses on two missions: training and equipping Afghan forces so that the country
does not again slip into chaos, and counter-terrorism efforts that allow us to pursue the remnants of al Qaeda
and their affiliates.” This address served to strengthen the team’s commitment to success.
This national-level emphasis on program success also allowed for creative, non-traditional solutions to providing
weapon systems at an unusually high rate. For example, the Department of the Army allowed the diversion of
Army-owned assets to this FMS case to fill immediate needs, with Army stocks to be replenished from new production
using FMS case funding. Not only did this unusual step improve our responsiveness, it also provided the added benefit
of updating the Army inventory with all new items.
Another contributor to the success of this program was the USMC. Over the past several years, the Army and Marines
have cooperatively developed, qualified, and fielded a newer and lighter 60 mm mortar system, the M224A1. The
Marines have been aggressively replacing their M224 systems with M224A1s, thus freeing up M224s for demilitarization.
In large part as a result of the good will built up during years of interservice cooperation, the Marines allowed
this excess inventory to be overhauled and sold, rather that demilitarized and scrapped, resulting in a very
substantial cost savings.
The dedication of the workforce at WVA, New York, and at ANAD was also key to program success. WVA provided for
new production of many components, as well as expertise in assembling kits, and staging and shipping systems into
theater. ANAD was responsible for overhauling many of the weapons. Their tireless commitment to quality ensured
the safety of the weapons and provided an added benefit of minimizing schedule risk due to unnecessary scrap and
TACOM PSID played a key role in providing both new and used Army assets for the effort, purchasing new components
using existing sustainment contracts, coordinating with the DLA for acquisition of DLA-managed items, and providing
direct oversight and management of ANAD depot efforts.
The final enabler to program success was the PM’s ability to leverage a new equipment training (NET) team that was
already in theater. This NET team, from Combined Security Transition Command – Afghanistan (CSTC-A), was composed
of a mix of active-duty and former Soldiers, all graduates of the Army’s Infantry Mortar Leader Course (IMLC). They
were indispensible in writing the doctrine and tactics, techniques, and procedures (TTPs) that the ANA would use in
both training and in combat. After that, these military and civilian professionals actually trained their ANA
counterparts to the highest standards to allow them to train their own soldiers in the proficient use of the weapons.
If the team had not already been stood up and in theater, additional time and expense would have been incurred to
form and deploy the necessary capability.
As is always the case with any successful program, the ANA 60 mm mortars case was the result of a very strong team
effort. The lesson to be learned is that the strongest teams are the ones who are already used to working together.
PdM GPM2S has had a history of cooperation with the USMC, MCoE, TACOM, WVA and ANAD to provide world-class equipment,
training, and support to Soldiers and Marines. As the Army’s Product Manager for Mortar Systems, PM GPM2S was uniquely
qualified and positioned to respond to the urgency and need for providing mortar systems to the ANA. The product
manager immediately stood up an IPT of mortar system professionals with defined roles and responsibilities. Daily
meetings were established and a management tool referred to as “the dashboard” chart was created to capture and present
the key events and weekly accomplishments. The dashboard chart was also used as a communication medium to keep Army
leaders closely informed of critical program milestones and weekly achievements.
Despite times of constrained resources and reduced travel budgets, true team building requires at least some face-to-face
contact to foster trust and communication. For example, members of the IPT from PM GPM2S and TACOM-Warren travelled to
ANAD, a key location in the process, to ensure the urgency of the mission was well understood, along with establishing
the process map for refurbishment and shipping. In addition, periodic face-to-face meetings are also required after the
team is formed and working to ensure that project status is tracked accurately and that priorities are properly communicated.
A specific lesson for time-sensitive cases is the existence of the Special Defense Acquisition Fund (SDAF). This is a
revolving fund administered by the Defense Security Cooperation Agency (DSCA) that may not be familiar to many program
managers. Authorized in 1981, it was specifically created to allow for the acquisition of defense articles and services
in anticipation of a future FMS sale. Tapping into this fund allowed PdM GPM2S to order some long-lead items early,
thereby shaving approximately one month from the program schedule.
Finally, PdM GPM2S learned the value of indefinite delivery / indefinite quantity (ID/IQ) contracts in responding rapidly
to a surge in requirements. PdM GPM2S’ parent organization, Project Manager Combat Ammunition Systems (PM CAS) maintains
numerous ID/IQ contracts for artillery and mortar munitions, both at the subcomponent level and for the load, assemble,
and pack (LAP) of all-up rounds. Once established, these contracts allow for the rapid procurement of parts, projectiles
or cartridges from any one of several qualified suppliers to meet surge demands. Traditionally, the procurement of major
weapon systems have been focused on meeting U.S. requirements only and therefore have not required this flexibility and
The Joint Capabilities Integration and Development System (JCIDS) and Planning, Programming, Budgeting, and Execution
System (PPBES) processes normally provide PMs with years to decide on a contracting strategy, build the required procurement
packages, and perform competitive selections. If a PM wants to be able to respond quickly to future foreign demands, they must
have more foresight and be willing to put in the extra work up front to ensure that more flexible and responsive contract
vehicles are available to them when needed.
As the nation winds down from the latter of two large conflicts, our need to procure large numbers of weapons will taper off.
This may lead to a risk of losing valuable parts of our military industrial base. At the same time, however, many of our potential
allies now recognize more than ever that the United States has the best-equipped Army in the world. As a result, they would now like
to equip their own forces with weapon systems that are as safe, effective and reliable as ours. This situation offers up the opportunity
to supplement domestic weapons procurement with foreign sales to maintain our own ability to respond to future conflicts. Wherever
possible, PMs should prepare in advance to respond to security cooperation and security assistance cases with high-quality, timely,
and cost-effective support so that we are the supplier of choice.