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Department of Defense (DoD) Information Technology (IT) Consolidation Strategy and Roadmap
January 2011
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Approved By:
Date
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Foreword
The number of networks the Department of Defense uses to execute its missions has grown exponentially over the last 30 years. Initially purposed to reduce complexity and streamline decision making, the bolt on approach to information technology development has resulted in layers of stove-piped systems that are difficult to integrate and not as effective as needed. The unnecessary complexity of our networks and information technology reduces our ability to secure our information systems, hampers our ability to share information, and needlessly consumes the finite resources available to the Department. This untenable situation requires that we make dramatic changes in how we develop, sustain, and implement information technology across the Department. Together, we modify existing processes to reduce complexity and optimize our networks for the joint environment. Our goals are to dramatically increase our cyber security posture, increase our effectiveness across joint and coalition lines, and reduce the resources our networks consume. This document is our strategy and initial roadmap to achieve these goals through consolidation of information technology infrastructure across the Department in order to deliver a streamlined, rationalized, and simpler network. Through this plan, we are committing to a task that requires changes to policies, cultural norms, and organizational processes in order to provide lasting results. We will focus initially on obtaining tangible results in 2011 and 2012 and plan for aggressive consolidation through 2015. By aggressively consolidating now we will be better positioned to embrace emerging technology and provide cutting-edge service to our warfighters. This aggressive consolidation cannot, however, come at the price of degraded capabilities for the warfighter or inflexible commitment to a given technological solution. Accordingly, this strategy and roadmap is intended to provide the Department with sufficient flexibility to respond to and incorporate emerging technology and to identify and take appropriate actions for those efforts that are not producing. Our focus remains, as it always has been and always will be, to enhance our ability to execute our primary mission: provide the military forces needed to deter war and to protect the security of our country. This effort will be a collaborative undertaking in which I will work side-by-side with the Departments Component CIOs or equivalent information technology leads to plan and execute this roadmap and to strengthen the partnerships between the DoD CIOs office and the offices of Under Secretary of Defense for Acquisition, Technology & Logistics (USD(AT&L)), Director for Cost Assessment and Program Evaluation (D, CAPE), Under Secretary of Defense Comptroller (USD(C)) and Deputy Chief Management Officer (DCMO) to affect long term change. I look forward to leading the Department through this consolidation effort and delivering a better DoD Enterprise in the immediate future. //signed// Teri M. Takai DoD Chief Information Officer
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Executive Summary
Historically, DoDs information technology (IT) investments have been built to meet the needs of individual projects, programs, organizations and facilities. This decentralized approach has resulted in large cumulative costs and a patchwork of capabilities that create cyber vulnerabilities and limit our ability to capitalize on the promise of information technology. In August 2010, the Secretary of Defense directed the consolidation of IT infrastructure to achieve savings in acquisition, sustainment, and manpower costs and to improve DoDs ability to execute its missions while defending its networks against growing cyber threats. Specific direction was received to consolidate IT infrastructure to optimize for the Joint environment and to pursue consolidation in a way that does not preclude future consolidation of IT infrastructure at the DoD enterprise level. During 1st quarter FY11, over 240 representatives from Office of the Secretary of Defense (OSD), the Military Departments, Defense Information Systems Agency (DISA), National Security Agency (NSA) and United States Cyber Command (USCYBERCOM) analyzed opportunities to consolidate DoD IT infrastructure through specific initiatives in five functional areas -Network Services, Computing Services, Application & Data Services, End-User Services, and IT Business Processes. Detailed descriptions, initial implementation timelines, and rough order of magnitude (ROM) estimates of required investments and potential savings were developed for twenty-six initiatives. Each initiative contributes to one or more of the IT Consolidation goals increase mission effectiveness, improve cyber security, and deliver efficiencies. Preliminary estimates are that this initial set of initiatives will deliver efficiencies of $1.2B $2.2B annually by FY15 and $3.2B - $5.2B over the Future Years Defense Plan (FYDP). This effort has already resulted in a direct budget reduction of $1.7B across the FYDP in the FY12 DoD submission to the Presidents Budget through specific IT consolidation actions by the Air Force ($1.2B) and the Army ($500M). The DoD CIO Executive Board (CIO EB) is the Department's senior functional oversight body for IT infrastructure and will be the focal point for IT consolidation governance. Component progress against their IT consolidation performance measures will be reported through the CIO
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EB to the Deputys Advisory Working Group (DAWG) and the Defense Business Systems Management Committee (DBSMC) (as appropriate). Specific changes to the Departments three core processes (Joint Capabilities Integration Development System (JCIDS), Planning, Programming, Budgeting and Execution (PPBE), and Defense Acquisition System (DAS)) are required to address the systemic conditions resulting in DoDs stove-piped IT infrastructure. The DoD CIO will work with the core process owners to implement the required changes. These efforts will be synchronized with the parallel DoD activities underway to reform DoD IT acquisition. Effective communication is critical to building DoD-wide commitment required to optimize DoD IT infrastructure for the joint environment. This document is the initial communication of the Secretarys intent and will be followed by communications that detailing associated policy, performance measures, architectures and standards.
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Table of Contents
1 2 3 Introduction ................................................................................................................... 1-1 Background ................................................................................................................... 2-1 IT Consolidation Strategy ............................................................................................ 3-3 3.1 IT Consolidation Goals ........................................................................................... 3-3 3.1.1 Improve Mission Effectiveness ......................................................................... 3-4 3.1.2 Improve Cyber Security .................................................................................... 3-5 3.1.3 Deliver Efficiencies ........................................................................................... 3-5 3.2 3.3 3.4 3.5 4 4.1 Governance .............................................................................................................. 3-6 Management Approach ........................................................................................... 3-7 Performance Metrics ............................................................................................... 3-7 Communication Plan ............................................................................................... 3-8 IT Consolidation Initiatives ................................................................................... 4-11
IT Consolidation Roadmap .......................................................................................... 4-9 4.1.1 Network Services (NS) .................................................................................... 4-12 4.1.2 Computing Services (CS) ................................................................................ 4-13 4.1.3 End-User Services (EUS) ................................................................................ 4-14 4.1.4 Application and Data Services (ADS)............................................................. 4-16 4.1.5 IT Business Processes (BP) ............................................................................. 4-18
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Estimated Efficiencies ................................................................................................. 5-18 Sustaining Processes ................................................................................................... 6-19 6.1 6.2 6.3 6.4 6.5 IT Governance ....................................................................................................... 6-20 Certification and Accreditation ............................................................................. 6-20 Joint Capabilities Integration Development System (JCIDS) ............................... 6-20 Planning, Programming, Budgeting and Execution (PPBE) ................................. 6-21 Defense Acquisition System (DAS) ...................................................................... 6-23
Appendix A Network Services Initiatives......................................................................... A-1 NS1 Consolidate Security Infrastructure ...................................................................... A-1 NS2 Consolidate NetOps Centers ................................................................................. A-1 NS3 Implement Cross Domain Solution as an Enterprise Service ............................... A-1 NS4 Implement Standard Certification and Accreditation Process .............................. A-1 NS5 Extend Joint Networks Over SATCOM ............................................................... A-1 NS6 Implement Video over IP as an Enterprise Service .............................................. A-2 NS7 Implement Voice over IP as an Enterprise Service .............................................. A-2
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NS8 Transport - Joint Enterprise Network (JEN) ......................................................... A-2 NS9 Enterprise Network Infrastructure Reliability ...................................................... A-2 NS10 Defense Red Switch Network (DRSN) Rationalization ..................................... A-3 Appendix B Computing Services Initiatives .................................................................... B-4 CS1 Data Center and Server Consolidation .................................................................. B-4 CS2 Computing Infrastructure and Services Optimization .......................................... B-4 CS3 Cloud Computing .................................................................................................. B-4 CS4 Service Desk Consolidation and Optimization ..................................................... B-4 Appendix C Application and Data Services Initiatives ................................................... C-6 ADS1 Enterprise Messaging & Collaboration Services (including Email) .................. C-6 ADS2 Identity and Access Management Services........................................................ C-6 ADS3 Enterprise Services............................................................................................. C-6 ADS4 Records Management......................................................................................... C-6 Appendix D End User Computing Services Initiatives ................................................... D-8 EUS1 Next Generation End-User Devices ................................................................... D-8 EUS2 Multi-Level Security Domain Thin-Client Solutions......................................... D-8 EUS3 Interoperability Within DoD and Between Mission Partners ............................ D-8 Appendix E IT Business Process Initiatives ..................................................................... E-9 BP1 Consolidate Software Purchasing ......................................................................... E-9 BP2 Consolidate Hardware Purchasing ........................................................................ E-9 BP3 Optimize IT Services Purchasing .......................................................................... E-9 BP4 Common Business Process Foundation ................................................................ E-9 BP5 Promote and Adopt Green IT .......................................................................... E-10 Appendix F Acronym List ................................................................................................. F-2
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List of Figures
Figure 2-1 DoD IT Infrastructure Characteristics ....................................................................... 2-2 Figure 3-1 IT Infrastructure Consolidation Goals ...................................................................... 3-3 Figure 3-2 DoD IT Consolidation Governance Framework ....................................................... 3-7 Figure 3-3 Building Commitment ............................................................................................... 3-8 Figure 4-1 IT Consolidation Initiatives..................................................................................... 4-10 Figure 4-2 IT Consolidation Initiatives..................................................................................... 4-11 Figure 4-3 DoD Data Center Consolidation Approach............................................................. 4-14 Figure 4-4 Notional Multi-Level Secure Desktop Environment .............................................. 4-16 Figure 5-1 IT Consolidation Efficiencies ................................................................................. 5-19
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1 Introduction
In August 2010, the Secretary of Defense (SecDef) announced a Department-wide Efficiencies Initiative to move Americas defense institutions towards a more efficient, effective, and costconscious way of doing business.1 DoD Components were directed to conduct a zero-based review of how they carry out their missions and priorities and to rebalance resources to better align with DoDs most critical challenges and priorities. As part of the announcement, the SecDef directed the consolidation of IT infrastructure assets to achieve savings in acquisition, sustainment, and manpower costs and to improve DoDs ability to execute its missions while defending its networks against growing cyber threats. In response, the DoD established an IT Consolidation Task Force to analyze alternative courses of action (COAs) and recommend specific IT infrastructure consolidation initiatives. Three COAs were developed: COA 1 Consolidate IT infrastructure at the DoD Component level; COA 2 Consolidate IT infrastructure to optimize the Joint environment; and, COA 3 Consolidate IT infrastructure at the DoD enterprise level. A November 2010 in-process review resulted in SecDef direction to consolidate IT assets to optimize the Joint environment (COA 2) and to pursue the consolidation in a way that does not preclude future consolidation at the DoD enterprise level (COA 3). To optimize for the joint environment is to create a seamless DoD Enterprise Information Environment (EIE), which will support cross-organizational, geographically dispersed users through the delivery of IT infrastructure capabilities. The EIE is composed of Global Information Grid (GIG) assets that operate as, provide transport for, or assure networks at all levels. The EIE Mission Area (EIEMA) is the DoD IT portfolio that manages investments in the information sharing, computing, and communications environment of the GIG. The EIE includes computing infrastructures and common enterprise services that provide users with the ability to access and use information on the GIG. The consolidation of IT infrastructure described in this plan will replace Service and installation-specific IT infrastructure capabilities and processes with the intention of optimizing the DoDs IT infrastructure, increasing mission effectiveness, and improving cyber security, and reducing cost in accordance with SecDef direction.
2 Background
The DoD is an immense and complex organization. It has more than 1.4 million men and women serving on active duty, employs 750,000 civilian personnel, and counts another approximately 1.1 million in the National Guard and Reserve, making it the nations largest employer. Additionally, more than 5.5 million family members and military retirees receive benefits as a result of their past service or their relation to a service member. Supporting the diverse IT needs of this population is a tremendous challenge that involves over 15,000 classified and unclassified networks, more than seven million computers and IT devices, and a 170,000person information technology workforce.
Gates, Robert M., (2010). Statement on Department Efficiencies Initiative. Accessed from: http://www.defense.gov/speeches/speech.aspx?speechid=1496 DoD IT Consolidation Strategy and Roadmap 2-1
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Area of Support
Total IT Budget
$ 37 billion $10 billion in Infrastructure
IT Systems
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The DoD depends on timely, accurate and focused information at every echelon: the full range of military operations (ROMO), Joint Operations Concepts (JOpsC), Joint Integrating Concepts (JICs) and Joint Functional Concepts (JFCs).2 Achieving and maintaining the information advantage as a critical element of national power requires the concentrated effort of the entire DoD to provide an information environment optimized for the warfighter and effective for all echelons from the tactical edge to the strategic core. Unfortunately, the way our networks are developed, funded, and implemented fosters unnecessary complexity and redundancy. As a result of this decentralized approach and lack of governance and oversight, the Department's IT infrastructure delivers a patchwork of capabilities that create cyber vulnerabilities, impede Joint operations, result in large cumulative costs, and limit our ability to capitalize on the promise of information technology. In addition to enhancing our defense networks in order to better support the information needs of the Department, this strategy and roadmap also focuses on better support for and interoperability with our mission partners. The global reach of the United States and its position of prominence in global affairs dictate that the Department does not operate in a vacuum. As a result, we ensure success by operating in conjunction with domestic agencies and federal departments, armed forces and governments of foreign countries, and international non-governmental agencies. Regardless of the spectrum in which the DoD is operating, from disaster relief to full kinetic warfare, the information environment must support collaboration and information sharing in order to be effective.
Joint Staff J7. (2010). J7 Joint Force Development and Integration Division (JFDID). Accessed from: http://www.dtic.mil/futurejointwarfare/index.html DoD IT Consolidation Strategy and Roadmap 2-2
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3 IT Consolidation Strategy
An effective military strategy can be expressed as Strategy = Ends + Ways + Means 3 where Ends refers to the end state objectives or goals; Ways are the actions required to get to the end state; and, Means" are the resources needed to execute the actions. The "ends" of the DoD's IT Consolidation Strategy are detailed in Section 3.1. Sections 3.2 through 3.5 describe the ways and means that are necessary to achieve the goals.
Efficiency
Key Benefits Unity of effort Do more with less Reduce acquisition, procurement and sustainment cost Improve IT cost awareness Eliminate redundant effort and cost
Reduce duplication in the DoD IT Inf rastructure, and deliver signif icant ef f iciencies across the Department
Effectiveness
Improve mission ef f ectiveness and combat power throughout the Department
Cyber Security
Improve the security of DoD networks and inf ormation f rom all threats
Key Benefits Unity of command Consistent and improved user experience Rapidly deliver new business and mission capabilities Increase interoperability with in-place systems Global access to needed information Improve availability and reliability
Key Benefits Unify command and control of critical networks Detect and eliminate malicious activity Validate access to information based on enterprise identity and user attributes
The result of these consolidation initiatives will be a DoD Information Environment which is able to provide the warfighter with the required information and services in a seamless manner. This standardized network infrastructure will eliminate the organizational barriers to information sharing and, as a result of this standardization, eliminate seams which attackers can exploit to
3
Arthur F. Lykke Jr., ed., (1998). Military Strategy: Theory and Application. Carlisle, Pa: U.S. Army War College, 3-3
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gain access to vital information or systems. The consolidation and standardization outlined in this document will also improve the flexibility of defense networks by minimizing the organizational and technological changes needed in order to incorporate or respond to changes in emerging technology.
Department of Defense. (2008). National Defense Strategy. Accessed from http://www.defense.gov/news/2008%20national%20defense%20strategy.pdf 5 Joint Staff J6. (2009). Global Information Grid 2.0 Initial Capabilities Document, JROCM 095-09 6 Joint Staff J6. (2009). The Global Information Grid 2.0 Concept of Operations Version 1.1 DoD IT Consolidation Strategy and Roadmap 3-4
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Improve communication and understanding through information sharing with mission partners Improve situational awareness and force protection by providing reliable and timely access to required information DoDs IT infrastructure must be simplified as an integrated and interoperable resource that quickly delivers the right information at the right time to the right place anywhere in the world.
Department of Defense. (2009). National Defense Budget Estimates for FY 2010. Accessed from: http://comptroller.defense.gov/defbudget/fy2010/Green_Book_Final.pdf DoD IT Consolidation Strategy and Roadmap 3-5
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leveraging shared services and consolidating IT and telecommunications equipment, resources and investments can achieve greater efficiency, cost-effectiveness, and environmental sustainability in IT and telecommunications operations. DoDs IT Consolidation activities will optimize DoD investments in IT infrastructure while also increasing mission effectiveness and improving cyber security. Specific initiatives will: Reduce duplication and eliminate redundancy through deployment of a coherent architecture to integrate / reduce networks, applications, data centers Lower procurement and sustainment costs Leverage economies of scale to increase buying power Reduce energy use
3.2 Governance
An effective DoD CIO governance structure begins with strong CIO-driven leadership to establish direction and hold the Departments IT organizations accountable. In today's complex DoD IT environment, leadership must provide effective governance to manage technology in support of business needs and mission effectiveness. This governance includes the structures and processes for setting direction, establishing standards, and prioritizing IT investments. Through proper governance, the DoD is able to leverage a framework for accountability in enforcing compliance with decisions about technology use and procurement. The DoD CIO has primary responsibility for the development and enforcement of the Departments overall IT policy, architecture and standards; Component CIOs are accountable for implementing and complying with DoD CIO direction. The DoD CIO will leverage the DoD CIO Executive Board and its reporting relationship to the DAWG (and the Defense Business Systems Management Committee (DBSMC) as appropriate) as the focal point for DoD IT Consolidation. This board will serve as the Department's single, senior governance forum in which IT Consolidation matters are reviewed and approved or disapproved. Components will submit their aligned IT Consolidation implementation plans to this forum and progress will be tracked, consolidated, and briefed to the DAWG through this forum. The necessary subordinate groups needed to produce policy, standards, architecture, and guidance will be formed under the direction of this board. Figure 3-2 shows the tiered structure that IT Consolidation governance will follow.
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Figure 3-2 DoD IT Consolidation Governance Framework
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Number of duplicative applications The percent of mission critical applications using the enterprise attribute-based access control capability The dollar value flowing through designated DoD-wide COTS hardware (HW)/ software (SW) procurement mechanisms Focusing metrics on the key drivers will illuminate lower-level implementation issues without placing undue reporting burdens on the Components.
In addition to the framework provided by the commitment curve, the communications strategy will be constructed using the following guiding principles:
Adapted from the Commonwealth of Massachusetts IT Consolidation Communications Plan. See http://go.usa.gov/Yat DoD IT Consolidation Strategy and Roadmap 3-8
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1. Recruit leaders (e.g., COCOM Commanders, Military Department CIOs, Agency CIOs) and utilize existing working groups (e.g., DAWG, DBSMC, CIO Executive Board) to serve as communications champions 2. Distribute communications in a tiered fashion i.e. a message is created centrally and passed down in a consistent manner through each level of leadership to build message consistency and allow for delivery from the appropriate leader for each stakeholder group 3. Provide timely updates that are appropriately scoped for each stakeholder group throughout the entire consolidation process 4. Incorporate a two-way communication process, providing stakeholders with mechanisms to ask questions, offer feedback, and raise issues 5. Establish a procedure for addressing raised issues and communicating results with stakeholders in a timely fashion 6. Target messages at stakeholder needs and concerns 7. Conduct the planning, budgeting, and governance in a transparent way that ensures a balanced and non-duplicative set of IT capabilities are provided by a set of Component implementation plans The expected benefits of the strategy include consistent messaging throughout the process, wellinformed stakeholders, and coordinated efforts across the Department.
4 IT Consolidation Roadmap
In accordance with the SecDefs direction to consolidate DoD IT infrastructure, the DoD CIO established working groups to identify specific initiatives that align to the IT Consolidation goals of increasing mission effectiveness, improving cyber security, and delivering efficiencies. Over 240 representatives from Office of the Secretary of Defense (OSD), the Military Departments, DISA, NSA, and USCYBERCOM identified a set of initiatives that map to the IT Consolidation goals as shown in Figure 4-1. The initiatives are grouped in the following functional areas: Network Services (NS): The services (including hardware, software and labor) that provide the telecommunications (i.e. voice, video, and data transport), including inter-installation (long haul) networks, installation campus area networks, network management and information assurance services Computing Services (CS): The services that provide the ability to process, store and access information, including data centers and the server, storage and other hardware inside of them Application and Data Services (ADS): The common shared applications, services, and processes. End-User Services (EUS): The specific subset of computing services which enable end-users to access information applications and services locally and via the network IT Business Processes (BP): The business processes used to procure the hardware, software and services needed to operate and maintain DoD IT Detailed descriptions, initial implementation timelines, and rough order of magnitude (ROM) estimates of required investments and potential savings have been developed for each initiative. Technical and cultural risks were assessed on a scale of high, medium, and low. The following sections describe the technical approach to consolidation for each functional area. Brief descriptions of each initiative are provided in Appendix A through Appendix E.
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Figure 4-2 IT Consolidation Initiatives
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For each initiative we will first complete the Business Case Analysis reports necessary for the further development of the enterprise architecture and standards. Upon finalization of the enterprise architecture and standards, Components will develop implementation plans that align to these enterprise architectures. Once the Component plans have been coordinated and approved, all stakeholders will move out quickly to implement solutions in each area. As an example, the Computing Services Consolidating Data Centers and Servers initiative will first need to complete a Business Case Analysis study for the use of Enterprise, Area, Regional and Installation data centers. The data and findings of the Business Case Analysis will be used to establish the data center standards and criteria needed by the Components to determine which location and type of facility they should incorporate into their planning. The DoD CIO Executive Board will review, coordinate, and approve each Component implementation plan and then track progress over the implementation period.
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The objective is to consolidate computing services into one of three computing center facilities: (1) Enterprise Computing Centers (ECC); (2) Area/Regional Processing Centers (A/RPC); or, (3) Installation Processing Centers (IPC) as shown in Figure 4-3. Enterprise Data Center (EDC): EDCs are designated by the DoD CIO and may be owned and operated by either the Defense Information Systems Agency (DISA) or a Service. EDCs comply with enterprise level standards and host applications from any DoD component based on agreed upon service level agreements. EDCs are the preferred and default location for all DOD servers. Area/Regional Processing Centers (A/RPC): A/RPCs are very similar to EDC in terms of ownership and operation. A/RPCs are designated by the DoD CIO in collaboration with geographic COCOMs to host systems which must have either a primary or back-up instantiation in a particular region for technical, operational, or financial reasons. Installation Processing Center (IPC): Each DoD installation may have a single IPC of the minimum size necessary to host only those systems that require local instantiation for operational or technical reasons. These processing centers will be allowed only by exception obtained through a waiver process which includes validation from the DoD CIO. Components will develop plans to relocate existing computing center facilities into one of the three types of facilities described above.
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built. These initiatives aim to eliminate the costs of maintaining traditional workstations and the installation campus area networks and infrastructure upon which they depend, while significantly increasing end-user mobility and capability. The consolidation efforts will create a network infrastructure that is secure, resilient, rapidly restorable, and capable of supporting multiple missions by providing the user with the mission data, interoperability, and services necessary to operate in an increasingly mobile operating environment. Next generation end-user devices will utilize standardized network, data, and application services to maximize cost savings, flexibility, and defensibility. Centrally managed diversity allows for a myriad of interoperable devices optimized for a variety of missions and needs. The desired end state is for the Department to enjoy end-user devices that have a minimized attack surface area, enable robust network protection, and are rapidly restorable to a known good-state supporting resilience, constant continuity of operations (COOP) capabilities, and user credential protection. These initiatives set the stage for DoD to take advantage of recent and future technical changes and advances in the types of devices people use to access their information (i.e. smart phones, diskless nodes and tablets). To enable the Department to take advantage of next generation devices, the DoD will move immediately to consolidate this emerging end-user infrastructure and make it joint from birth by taking the following actions: 1. Centrally coordinate all next-generation device pilots, tests, and other initial implementations to reduce unnecessarily redundant testing and expenses 2. The testing, certification, and procurement of next-generation devices will be consolidated at the enterprise level to enable test once, use everywhere and gain the economies of scale associated with aggregated enterprise-level purchasing 3. Centrally manage all next-generation device configurations and consolidate all nextgeneration hardware and software purchases to both take advantage of economies of scale and promote software and system re-use 4. Establish a limited number of standard DoD development platforms and repositories to save testing and certification costs through a test once, use every where process optimized for next-generation end-user devices with limited bandwidth 5. Coordinate continued pathfinder implementations of web-based desktop productivity software suites at the enterprise level
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Source: Al Udeid Combined Air and Space Operations Center (CAOC) Trusted Thin Client Training materials 4-16
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To accomplish these goals, the Department will take the following actions: 1. Designate select services provided by one or more components as mandatory DOD Enterprise Services and prohibit the programming, planning or execution of any funds (absent a compelling operational or documented business case) for the development or modification of any system which provides capabilities comparable to a designated mandatory DOD Enterprise Service 2. Establish a limited number of standard DOD development platforms and repositories (such as DISA RACE and SourceForge.Mil) to re-use Government developed code as much as possible and save testing and certification costs through a test once, use every where process optimized for next generation end user devices with limited bandwidth 3. Fully implement, and designate as mandatory for use, a federated enterprise solution for person-based access control on all SECRET and UNCLAS networks, including a suite of Enterprise Attribute Services for People which includes the implementation of component level Organization Servers, Global Force Management Data Initiative, and, associated DMDC and DISA provided services 4. Fully implement, and designate as mandatory for use, a federated enterprise solution for person-based access control on all SECRET and UNCLAS networks, including a suite of Enterprise Attribute Services for devices on all SECRET and UNCLAS networks, as a separate and distinct set of services from those used for people Near-term activities are focused on the Enterprise Email (ADS-1) deployment and Attribute Services (ADS-2). Attribute Services provide the foundational security capability needed for rapid and unanticipated information sharing. This managed and governed core support service provides attributes for access decisions within a centralized enterprise model. This service includes a collection of authoritative person and non-person entity (NPE) attribute data based on commonly defined and governed attributes and makes them available through an enterprise service model to integrate within DoD authorization and access capabilities (e.g., AttributeBased Access Control). The Attribute Service provides access to identity information and can expedite account provisioning and speed secure information sharing. Together with other DoD authorization and access capabilities, the Attribute Service provides the basis for replacing time- and resourceintensive manual processes with near real-time automated account provisioning and access control to shared information resources in. This core service supports a more agile, flexible, and responsive warfighting posture where the rules for access control can be quickly modified and enforced based on changing real-world conditions. Key objectives are to: 1. Increase warfighter access to required information and services, especially across organizational and security boundaries 2. Increase network flexibility, allowing for rapid response to operational conditions 3. Improve cyber security 4. Drive out anonymity via strong cryptographic authentication (e.g., Public Key Infrastructure) 5. Standardize access policies to enable more consistent access decisions
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6. Reduce duplicative costs associated with existing stove-piped and redundant identity and access management systems 7. Increase agility and interoperability with the implementation of commercial standards
5 Estimated Efficiencies
DoD CIO estimates that additional savings of $1.5 billion to $3.5 billion over the Future Years Defense Program (FYDP) are possible through IT consolidation as shown in Figure 5-1. The IT Consolidation initiatives will result in a combination of direct and indirect budget savings that will be retained by Components to deliver high-priority IT capabilities. These efficiencies are in addition to the $1.7 billion direct budget savings from the Army ($500 million) and Air Force ($1.2 billion) included in the DoD FY12 Presidents Budget (PB12) submission. The Army and Air Force efficiencies were identified during the SecDef-directed zero-based review of functions and resources within all DoD Components. A significant portion of the future IT Consolidation efficiencies will be the result of reduced sustainment funding for legacy capabilities that are eliminated and replaced by enterprise capabilities. As the funding for these legacy initiatives is spread over many hundreds of program elements, the current budget processes and mechanisms do not provide adequate insight to allow funds to be redirected. Other efficiencies will be realized through reduced procurement costs or reduced energy costs.
10
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723 724 725 726 727 728 729 730 731 732 733 734
The current PPBE process and supporting systems do not provide adequate transparency and insight into IT expenditures and will not support accurate accounting of IT Consolidation efficiencies. DoD CIO will work with the Director, Cost Analysis and Program Evaluation (D, CAPE) to develop appropriate Business Case Analysis (BCA) approaches to evaluate IT Consolidation initiatives. Top-line adjustments to component budgets will enable the Department to redirect savings from efficiencies to the development of additional enterprise capabilities. The Department is evaluating alternative funding mechanisms and portfolio approaches for IT as part of the IT Acquisition Reform effort required by Section 804 of the 2010 National Defense Authorization Act (NDAA). As these reforms are enacted, DoD CIO will re-evaluate the ability to adequately measure IT consolidation savings.
FY 11-15 Minimum 440 810 390 280 1,280 3,200 Most Likely 790 1,210 530 680 1,990 5,200
Initiative Area
Computing Services Network Services End-User Services Application and Data Services IT Business Processes**
1,290
6 Sustaining Processes
Achieving the goals and objectives of IT consolidation will require strong enterprise-level governance and monitoring led by the DoD CIO in partnership with stakeholders from across OSD and the Components. This will require substantial cultural change within the DoD decisionmaking community. Adherence to DoD CIO policy and Enterprise Architecture guidance must
DoD IT Consolidation Strategy and Roadmap 6-19
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742 743 744 745 746 747 748 749 750 751 752 753 754 755 756 757 758 759 760 761 762 763 764 765 766 767 768 769 770 771 772 773 774 775 776 777 778 779 780 781 782 783 784
be embedded throughout the Departments core decision-making processes, and the DoD CIO must have clear, unambiguous authority across the Enterprise to hold DoD Components accountable for alignment to IT policies and initiatives and delivery of IT solutions. Strong governance mechanisms will be required to both support the consolidation efforts and ensure that all unique operational requirements are addressed. Specific recommendations are discussed in the following sections.
6.1 IT Governance
Successful consolidation of DoDs IT environment will require strong, centralized leadership and governance. This will require institutional changes to critical decision-making processes as well as a cultural reform regarding the manner in which the Department manages information and information technology. DoD must evolve from a culture in which veto powers are widespread to one where leaders are fully empowered to drive transformation across the Department in alignment with the central vision. Without this level of commitment, change will not endure and the planned initiatives will be unlikely to survive changes in leadership or the conflicts of priorities that will surely develop over time. Additionally, to achieve the targeted savings, DoD must reallocate funding to facilitate the IT consolidation priorities and make corresponding reductions to affected programs. Effective IT governance begins with strong CIO-driven leadership to focus attention and hold Components accountable for complying with DoD IT policy, architectures, and standards. Strong incentives, enforceable by the DoD CIO, must be instituted to compel DoD managers at all levels to comply with Departmental guidance and must be accompanied by serious penalties for noncompliance. Additionally, roles, responsibilities, and relationships between the CIO and research, development, and acquisition organizations must be clearly aligned to ensure IT enterprise requirements are successfully translated into agile technical solutions that fully align with future IT enterprise initiatives.
6-20
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785 786 787 788 789 790 791 792 793 794 795 796 797 798 799 800 801 802 803 804 805 806 807 808 809 810 811 812 813 814 815 816 817 818 819 820 821 822 823 824 825 826 827 828 829
Implementation of the Enterprise Information Environment (EIE) portfolio approach within JCIDS will be achieved through the combination of the Command and Control (C2) and NetCentric (NC) Functional Capabilities Boards into a single Enterprise Information Environment Functional Capability Board (EIE FCB). The Joint Staff and the DoD CIO will be directed to establish this EIE FCB, adhering to the JCIDS process and answering to the JROC. This Functional Capability Board will be the central source for capturing Enterprise Infrastructure requirements and prioritizing enterprise capability delivery. JCB and FCB membership will be expanded to include the DoD CIO, and USCYBERCOM on behalf of USSTRATCOM. Specific JCIDS-related actions required to ensure EIE requirements compliance include: Modify JCIDS Documentation (CJCSI 3170 series) to require documentation of compliance with the DoD Information Enterprise Architecture (IEA) that contains business rules and relevant capability architectures that apply to all IT investments Modify Interoperability Instruction (CJCSI 6212) to strengthen DoD IEA compliance, clarify the Net-Ready KPP with respect to the DoD IEA, establish the requirement to align to and comply with relevant capability architectures, and require the adoption of the Enhanced Information Support Plan (EISP) process to assess compliance Modify the Joint Urgent Operational Needs Process (JUON) to insert steps to ensure that available DoD Enterprise Services are considered and used to the greatest extent feasible before considering alternative solutions Modify the Business Capability Lifecycle (BCL) process to require DoD IEA compliance
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830 831 832 833 834 835 836 837 838 839 840 841 842 843 844 845 846 847 848 849 850 851 852 853 854 855 856 857 858 859 860 861 862 863 864 865 866 867 868 869 870 871 872 873 874
D, CAPE and USD(C) shall establish business rules and procedures necessary to implement IT EIE resourcing initiatives; i.e., single EIE appropriation, EIE revolving fund, and EIE program/funding element restructuring consistent with DoD response to Section 804 of the National Defense Authorization Act for Fiscal Year 2010 (PL 111-84). As the EIE sponsor, the CIO, in partnership with USCYBERCOM on behalf of USSTRATCOM, shall also serve as capability sponsor in military needs and acquisition forums as required and/or determined by the VCJCS and USD (Acquisition Technology and Logistics). To sustain these changes, the DoD CIO, together with USD(C) and D, CAPE must enhance transparency and DoD-wide oversight of IT budget formulation and execution and exert more active oversight and control of the IT budget across all Components. These changes should include: Stronger DoD-wide oversight of IT budget formulation: This includes capital planning, preparation, prioritization and presentation activities, including determining and evaluating Information and IT resource requirements in support of mission execution; and, Stronger DoD-wide oversight of IT budget execution: This includes resource allocation and planning activities for Information and IT systems development, operations, and services as appropriate to ensure resources are expended in accordance with established IT policy; Concurrently, the DoD CIO will implement robust DoD-wide IT investment reviews, tightly integrated with the key decision processes, to give greater OSD governance or control in the selection, planning, review, and oversight of IT investments. This includes evaluating, managing risk and providing approval to proceed at the earliest state possible prior to initiating procurements or advancing to subsequent phases of system development and/or acquisition; as well as rigorous, regular reviews of the status and progress of projects and activities related to Agency Information and IT investments to determinate whether to continue, suspend, re-baseline or cancel projects or components thereof. Together, this budget and investment oversight is key to holding the organization accountable to the changes and achieving the targeted savings ensuring funding is applied to consolidation programs and correspondingly removed from those programs providing savings. In the long term, additional Planning, Programming, Budgeting, and Execution (PPBE) oversight and flexibility is needed to respond to the rapid changes of the IT environment Specific actions required to ensure EIE guidance is followed throughout the PPBE process include: Planning (POM Guidance): The DoD CIO will prepare an IT Addendum in the Guidance for the Development of the Force (GDF) to USD(Policy) in order to provide guidance specific to IT optimization via EIE architecture compliance Planning (POM Guidance): The DoD CIO will prepare an IT Addendum in the Joint Planning Guidance (JPG), and/or DPPG to D,CAPE in order to provide the guidance necessary to ensure component programs are appropriately resourced to use, and not duplicate, enterprise capabilities in compliance with both the DoD IEA and capability architectures Programming (POM Issue Process): The DoD CIO will request USD(C) to withhold or reprogram funds budgeted for systems that fail to comply with the DoD IEA or capability architectures, fail to use applicable DoD Enterprise Services, or, unnecessarily duplicate existing DoD Enterprise Solutions
6-22
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875 876 877 878 879 880 881 882 883 884 885 886 887 888 889 890 891 892 893 894 895 896 897 898 899 900 901 902 903 904 905 906 907 908 909 910 911 912 913 914 915 916 917 918
Financial Management Regulations (FMR)/Funding Documents: The DoD CIO will request USD(C) to modify standard DoD forms used to allocate and transfer funds (such as Military Interdepartmental Purchase Requests) to include a specific statement certifying that no funds on the subject funding document will be obligated for any IT service or system that is not compliant with the DoD IEA or capability architectures, specifically including the appropriate use and non-duplication of enterprise capabilities
6-23
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919 920 921 922 923 924 925 926 927 928 929 930 931 932 933 934 935 936 937 938 939 940 941 942 943 944 945 946 947 948 949 950 951 952 953 954 955 956 957 958 959
1/25/11 15:16
960 961 962 963 964 965 966 967 968 969 970 971 972 973 974 975 976 977 978 979 980 981 982 983 984 985 986 987 988 989 990 991 992 993 994 995 996 997 998 999 1000 1001 1002
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1003 1004 1005 1006 1007 1008 1009 1010 1011 1012 1013 1014 1015 1016 1017 1018 1019 1020 1021
enterprise information and communication technology efficiencies. This initiative is a cost center that makes the other initiatives operationally viable for DoD and Intelligence Community needs.
A-3
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1022 1023 1024 1025 1026 1027 1028 1029 1030 1031 1032 1033 1034 1035 1036 1037 1038 1039 1040 1041 1042 1043 1044 1045 1046 1047 1048 1049 1050 1051 1052 1053 1054 1055 1056 1057 1058 1059 1060 1061 1062 1063
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a single Enterprise Service Desk for each of the DoD Services leveraging industry best practices and shared IT infrastructure will result in hundreds of millions of dollars in savings across the DoD by eliminating redundant services and capabilities. More importantly, consolidating help desks into a single Service Desk will provide end-users with better and consistently repeatable service.
B-5
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1070 1071 1072 1073 1074 1075 1076 1077 1078 1079 1080 1081 1082 1083 1084 1085 1086 1087 1088 1089 1090 1091 1092 1093 1094 1095 1096 1097 1098 1099 1100 1101 1102 1103 1104 1105 1106 1107 1108 1109 1110 1111
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to respond to requests for Federal records, Freedom of Information Act (FOIA) cases, Equal Employment Opportunity (EEO) cases, and E-discovery litigation holds.
C-7
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1115 1116 1117 1118 1119 1120 1121 1122 1123 1124 1125 1126 1127 1128 1129 1130 1131 1132 1133 1134 1135 1136 1137 1138 1139 1140 1141 1142 1143 1144 1145 1146 1147 1148 1149 1150 1151 1152 1153 1154 1155
D-8
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1156 1157 1158 1159 1160 1161 1162 1163 1164 1165 1166 1167 1168 1169 1170 1171 1172 1173 1174 1175 1176 1177 1178 1179 1180 1181 1182 1183 1184 1185 1186 1187 1188 1189 1190 1191 1192 1193 1194 1195 1196 1197
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1198 1199 1200 1201 1202 1203 1204 1205 1206 1207 1208 1209 1210 1211 1212 1213 1214 1215 1216
existing applications that meet desired criteria and designate them as interim Core Enterprise Business Services that will be mandated for use across all DoD Components as the standard for performing these common business processes.
E-10
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1217 1218
Attribute-Based Access Control Application and Data Services Analyses of Alternatives Area of Responsibility Area/Regional Processing Centers Acquisition Technology and Logistics Business Case Analysis Business Capability Lifecycle Business Processes Certification and Accreditation Cost Assessment and Program Evaluation Consolidated Buy Chairman of the Joint Chiefs of Staff Instruction Courses of Action Combatant Command Concept of Operations Continental United States Continuity of Operations Commercial Off-the-Shelf Computing Services Director, Cost Analysis and Program Evaluation Defense Acquisition System Defense Business Systems Management Committee Defense Federal Acquisition Regulation Supplement Defense Information Systems Agency Defense Information System Network Department of Defense Department of Defense Chief Information Officer DoD Information Enterprise Architecture Department of Defense Information Technology Infrastructure Library Defense Policy and Planning Guidance Defense Red Switch Network DISN Video Services - Global DoD Enterprise -Top Level Architecture Deputy's Advisory Working Group Enterprise Computing Center Enterprise Data Center Equal Employment Opportunity Enterprise Information Environment Enterprise Information Environment Functional Capability Board Enterprise Software Initiative End-User Services Federal Acquisition Regulation Federal Data Center Consolidation Initiative Front End Assessment Financial Management Regulations
F-2
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FOIA FY FYDP GIG GSA HW IA IC ICAN ICD IP IPC ISDN IT ITC ITCR JCA JCIDS JFC JIC JIE JOpsC JP JROC JROCM JS JTF JUON MCU MDAP MilDeps NDAA NetOps NIPR NPE NS NSA NSS OMB OCONUS OMB OSD PACOM PDR PKI POM PoP PPBE
Appendix B
Freedom of Information Act Fiscal Year Future Years Defense Program Global Information Grid U.S. General Services Administration Hardware Information Assurance Intelligence Community Installation Campus Area Networks Initial Capabilities Document Internet Protocol Installation Processing Center Integrated Services Digital Network Information Technology IT Consolidation IT Consolidation Roadmap Joint Capability Area Joint Capabilities Integration Development System Joint Force Commander Joint Integrating Concept Joint Information Environment Joint Operations Concepts Joint Publication Joint Requirements Oversight Council Joint Requirements Oversight Council Memorandum Joint Staff Joint Task Force Joint Urgent Operational Needs Process Multipoint Control Unit Major Defense Acquisition Program Military Department National Defense Authorization Act Network Operations Unclassified but Sensitive Internet Protocol Router Non-Person Entity Network Services National Security Agency National Security System Office of Management and Budget Outside the Continental United States Office of Management and Budget Office of the Secretary of Defense United States Pacific Command Preliminary Design Reviews Public Key Infrastructure Program Objective Memorandum Point-of-Presence Planning, Programming, Budgeting and Execution
F-3
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QEB RACE ROM ROMO SATCOM SDN SecDef SIP SIPR TLA TS/SCI SMTP SW USCYBERCOM USD USD (C) USD (P) USSTRATCOM VoIP 1219
Quarterly Enterprise Buy Rapid Access Computing Environment Rough Order of Magnitude Range of Military Operations Satellite Communications Service Delivery Node Secretary of Defense Secure Internet Protocol Secret Internet Protocol Router Top Level Architecture Top Secret - Sensitive Compartmented Information Simple Mail Transfer Protocol Software United States Cyber Command Under Secretary of Defense Under Secretary of Defense (Comptroller) Under Secretary of Defense (Policy) United States Strategic Command Voice Over Internet Protocol
Appendix B
F-4