26 October 2001
Rumsfeld Issues Long-Awaited Guidance On DOD Space Realignment
Inside the Air Force

The Air Force is expected to finally gain milestone acquisition authority for the Defense Department's costly space programs and the go-ahead to assign a new four-star chief to Air Force Space Command, according to an Oct. 18 memo signed by Rumsfeld. The long-awaited guidance was sent to his under and assistant secretaries as well as the military services and CIA Director George Tenet.

According to one commission member, the memo is important because it establishes firm guidelines for the implementation of many of the Space Commission's recommendations.

"While the Air Force is moving out -- and presumably other elements of the Defense Department are as well -- this is a relatively significant milestone because it establishes firm guidelines" for the changes to come, said retired Gen. Thomas Moorman, former commander of U.S. Space Command. He spoke with Inside the Air Force  Oct. 23.

The Space Commission issued a slew of recommendations in a January report. Rumsfeld chaired the commission for most of its tenure before resigning the position late last year after he was nominated to take the top post at the Pentagon. The commission's work was mandated by Congress, and its goal was to identify needed changes in the national security space arena to strengthen space management.

Pentagon acquisition czar Pete Aldridge is expected within 60 days to prepare a policy memorandum delegating milestone acquisition authority for space major defense acquisition programs and other designated space programs to Air Force Secretary James Roche. Milestone authority for all major defense acquisition programs and other designated efforts now resides solely with Aldridge.

This shift is significant because it will split the authority to approve programs for various phases, including system design and development and production, between two authorities. Further, the Air Force, which will soon be named executive agent for space and handles the bulk of national security space programs, will have the authority to approve its own programs for progression through the acquisition pipeline.

After the shift is made, Aldridge will continue to handle milestone acquisition issues for high-profile shipbuilding and aircraft programs, for example, but not for satellite programs. Some critics say that arrangement will make it difficult to weigh tradeoffs between space programs and similar or related air-, sea- and ground-based programs.

Rumsfeld also directed Aldridge to handle the following changes: "Make National Security Space Architect (NSSA) military positions joint duty assignments" within 120 days, prepare a policy memorandum directing the Defense Advanced Research Projects Agency director and the military services' research laboratories to "undertake research and demonstration of innovative space technologies and systems for dedicated military missions" within 60 days; and prepare a memo that defines the relationship between the Air Force and the Ballistic Missile Defense Organization within 120 days.

Rumsfeld also directed Under Secretary of Defense for Personnel and Readiness David Chu to prepare within 30 days a plan to "ensure an effective sourcing of a four-star billet for the commander of Air Force Space Command, reflecting appropriate language in the National Defense Authorization Act," the memo said.

The Space Commission recommended splitting up the duties of the U.S. Space Command chief, who also serves as chief of the joint U.S.-Canadian North American Aerospace Defense Command and heads Air Force Space Command. Gen. Ed Eberhart, chief of SPACECOM, said last year that managing all three jobs was difficult and added that he had personally recommended to the commission that they be split.

Another key directive is for Chu to prepare a memo that would recommend the president approve Rumsfeld's appointment of the under secretary of the Air Force as the director of the National Reconnaissance Office, which buys and operates the Pentagon's secret satellite systems. That directive does not include a suspense time.

Placing so-called "black and white" space (classified and unclassified programs) within the same budget and acquisition authority was a key recommendation of the Space Commission. The commission made the suggestion to better align the national security space program and prevent overlaps or gaps in space efforts. The Air Force under secretary has enough authority to weigh in on space programs within the Air Force's internal budget deliberations, according to the commission's report.

Similarly, the under secretary of the Air Force, intended by the president to be former Lockheed Martin executive Peter Teets, will have purview over the National Security Space Architect's office. NSSA is an office manned by all the services, but critics say it has had little influence over Pentagon policies and budgeting efforts because it lacks its own budget. Aligning the NSSA under the under secretary of the Air Force will give the office more teeth to implement its suggested architecture plans, according to the Space Commission.

A memorandum of understanding between the CIA and Pentagon covering the NSSA realignment and related changes within the Air Force under secretariat is also expected within 120 days, according to Rumsfeld's memo.

Further, Chu is preparing a Pentagon directive to designate the Air Force as "the executive agent for space within the department of defense, with department-wide responsibility for planning, programming, and acquisition of space systems," the memo said.

"This directive should clarify the lines of authority, specific responsibilities, and coordination requirements between the executive agent for space and DOD components," according to Rumsfeld's memo.

Pentagon comptroller Dov Zakheim was directed to establish within 60 days a "'virtual' space program, budget and accounting mechanism (referred to as a 'virtual Major Force Program (MFP) for Space') to increase visibility into the resources allocated for space activities," the memo said. "The 'virtual' Space MFP will be identified in the future years defense plan (FYDP) by specific and exclusive program elements."

The major force program was also suggested by the Space Commission, which recommended the move because so many Defense Department and agency offices have similar and overlapping duties related to national security space. A virtual MFP is expected to give senior Defense Department officials oversight into exactly how much money is spent on space assets.

According to Rumsfeld's memo, Zakheim, "beginning with the current budget cycle," will promulgate planning and budgeting documents that include "separate guidance" for the DOD space program.

Separate fiscal guidance, however, will not be issued for space programs, according to Rumsfeld's memo.

The Space Commission also emphasized the need to cultivate a cadre of well-trained space professionals in order to encourage innovation and secure proper management of space systems.

To that end, Rumsfeld directed the secretaries of the military departments to develop guidance within 90 days to develop and maintain military and civilian space professionals. Separate guidance, also expected within 90 days, is expected to address space education.