General Lester L. Lyles is commander, U.S. Air Force
Materiel Command, Wright-Patterson Air Force Base, OH. The command conducts
research, development, test and evaluation, and provides acquisition management
services and logistics support necessary to keep Air Force weapons systems
ready for war.
 The general entered the Air Force in 1968 as a
distinguished graduate of the Air Force Reserve Officers Training Corps (ROTC)
program at Howard University. He has served in various assignments, including
Program Element Monitor of the short-range attack missile at Headquarters U.S.
Air Force in 1974, and as special assistant and aide-de-camp to the commander
of Air Force Systems Command (AFSC) in 1978. In 1981 he was assigned to
Wright-Patterson Air Force Base, as avionics division chief in the F-16 Systems
Program Office. He has served as director of Tactical Aircraft Systems at AFSC
headquarters and as director of the Medium-Launch Vehicles Program and
Space-Launch Systems offices.
The general became AFSC headquartersâ?? Assistant Deputy Chief
of Staff for Requirements in 1989, and Deputy Chief of Staff for Requirements
in 1990. In 1992 he became vice commander of Ogden Air Logistics Center,
Hill Air Force Base, UT. He served as commander of the center from 1993
until 1994, and then was assigned to command the Space and Missile Systems
Center at Los Angeles Air Force Base, CA, until 1996. The general became
the director of the Ballistic Missile Defense Organization in 1996.
In May 1999, he was assigned as vice chief of staff at Headquarters
U.S. Air Force. He assumed his current position in April 2000.
Lyles was interviewed by Senior Editor Dan Cook.
Q: The world changed on Sept. 11, 2001, and
with it the mission of the U.S. armed services. Could you briefly state
the mission of the Air Force Materiel Command and what has changed since
the terrorist bombings?
A: Our command is the support command for all of the U.S.
Air Force. Weâ??re responsible for developing new science and technology. Weâ??re
responsible for acquiring and developing new systems and for sustaining all of
our weapons systems. Itâ??s a cradle-to-grave responsibility, from technology to
development to sustaining every major system we have in the Air Force
inventory.
That ranges from aircraft systems and aeronautical systems
to command and control, intelligence, surveillance and reconnaissance systems
through munition systems. We no longer have responsibility directly for space
systems. On Oct. 1 of last year, that portion of our mission was turned over to
Air Force Space Command in response to the congressional Space Commission. But
we still have linkage with space activities because of the importance of space
to all of our development in the future.
Q: And the second half of the question?
A: Iâ??m always very careful of how I answer this. To be
perfectly honest with you, the mission itself has not changed. If anything has
changed, itâ??s the importance and urgency with which we accomplish our mission.
We have been working very aggressively to ensure that we get systems out of our
depots and supply systems to support the war effort, and weâ??ve been working
very aggressively to ensure that our technologies donâ??t just reside in our
laboratories and our benches, but we get those technologies and capabilities
into the hands of the warfighter a lot quicker than perhaps we would have done
normally. The biggest change has been the urgency of some of our processes and
the way we do business.
Q: What challenges have you experienced in
the past in accomplishing this mission and how were they resolved? What
new challenges remain and how will they be resolved?
A: The major challenge that I would highlight would be to
think in terms of capabilities or effects that were necessary for the
warfighter. We had been working, even prior to Sept. 11, on a whole different
mindset on how we develop and acquire systems. We call it enterprise
management; that is looking at what effects and what capabilities we need to
provide to our warfighters as opposed to individual programs or individual systems.
If anything, Sept. 11 has reinforced the importance of
capability and effects management and capability in effects thinking for
providing the kind of support we give to warfighters. Let me give you an
example: Instead of thinking of just an F-16 and its capabilities, or just an
F-15 and its capabilities, we think in terms of how the F-15 and F-16 need to
work with space systems, with command and control systems, with unmanned aerial
vehicles to give a certain effect to the warfighter.
Instead of developing against those individual stovepipe
programs, how do we ensure that we are working all those things together as an
enterprise to get the kind of war fighting effects and capabilities that are
necessary? Weâ??ve been putting a bigger emphasis on this since Sept. 11, but we
actually started before then.
Q: In 2001, the Air Force adopted the Agile
Acquisition initiative, the latest attempt at acquisition reform. Could
you describe what it is and how it works?
A: I liked the terminology you used in your question, that
itâ??s acquisition reform. The term I would like to use to describe it is
"acquisition excellence," if you will. Itâ??s more than just acquisition reform,
itâ??s really being the best we can be in every part of our acquisition process
in terms of technology and how we develop and mature technology, in terms of
defining requirements for our warfighters and the capabilities they need in
terms of the development process itself, and then again in terms of
sustainment.
What Agile Acquisition is intended to do is to try to
radically address the entire acquisition process to speed up a couple of
things, and the major area we focus on initially is cycle time. We want to be
able to give a capability to the warfighter in literally one-fourth of the time
than it would normally take. As an example, if it would normally take eight
years to give capabilities to a warfighter, weâ??d like to figure out how we can
provide that capability, at least an initial capability, to the warfighter in
two or three years.
So Agile Acquisition tries to speed up the entire
acquisition process to better support the warfighter than what weâ??ve done in
the past.
Q: Going back to the events of Sept. 11, has
there been any specific value of Agile Acquisition relative to those
events?
A: Probably the one that would jump out more than anything
else would be the capabilities provided by our unmanned aerial vehicles like
the Predator system and Global Hawk, a longer-range strategic ISR platform that
we have been developing. The normal course of action for both of those
programs - particularly for Global Hawk - would have not gotten that capability
into the hands of the warfighter for a few more years.
We now are looking at spiral development, if I can use that
terminology, so that we look at how we can get an initial capability to the
warfighter quickly for all of our systems. We have in fact been able to do that
with Global Hawk and with Predator, particularly a Predator with some armed
capability on it, to get that capability - even though itâ??s not perfected
yet - into the hands of the warfighter right away. Those would probably be the
two best examples of that.
Q: There has been discussion of "spiral development"
in the acquisition process as it related to the Air Force and to the
Army. What is this, and how will be applied relative to the Air Forceâ??s
mission?
A: For us, spiral development is doing something that I
think is very, very smart, and that is itâ??s a part of our objective of getting
capabilities to the warfighter quickly. To think in terms of meeting the total
requirements that the warfighter might have, but doing it in increments. We
call it "spirals," because what we want to do is get an initial capability to
the warfighter, let him test it, fly it, operate with it. From that weâ??ll learn
more about that capability. Weâ??ll learn more about the systems that are
involved in that, and then we will apply those lessons learned to the next
spiral, or the next update of that particular system.
As an example: Global Hawk. Weâ??re learning a lot by flying
Global Hawk in support of Operation Enduring Freedom. Weâ??re learning a lot by
operating Predators with weapons systems on them. And weâ??re going to capture
those lessons learned and apply them to the next major updates of each one of
these systems, the next spiral, for each one of these systems. It really is the
practice in changing the culture so that we get capabilities quickly to the
warfighter, and not try to solve everything - all of his needs - at one time, and
it takes eight to 10 years to do it.
We want to get an initial capability into the hands of the
warfighter as quickly as possible, and then use that as a precedent for lessons
learned to make upgrades to the next system, then do the same thing; to make
upgrades to the next system. Eventually, weâ??ll meet all the warfighterâ??s
requirements, but I think weâ??ll do it a lot better by the spiral approach
rather that the way we do it today.
Q: I am informed that the Air Force has conducted
more than 120 studies of acquisition reform. What is it about the Agile
Acquisition initiative that is superior to previous acquisition procedures?
Is this the answer to long lead times and general sluggishness in the
acquisition process?
A: I think all the stars are aligned with respect to pushes
from Congress, from the Secretary of Defenseâ??s office, from our warfighters,
and certainly from our very strong leadership in the Air Force - at both
Secretary and the Chief of Staff level - to change radically the way we do
business in the acquisition community to transform that whole process. We have
everybody aligned to support the kinds of initiatives that weâ??re coming up with
to address what we call Agile Acquisition.
In the past, we didnâ??t have everybody aligned to the point
where you could make radical changes and get them to stick. In this case,
everybody is behind it, and we are going to institutionalize some of the
changes we make, which is something we really didnâ??t do a good job of with some
of the other studies weâ??ve been doing for the last 10 or 12 years.
I think the biggest difference I can see is full support of
the entire leadership, from the administration on down to the leadership in the
Air Force, is to make radical changes and to get rid of impediments.
Q: Do you contemplate changes in the bid solicitation
process? If so, what will those changes entail?
A: The answer is "yes." I think we have had examples over
the recent past in some specific programs on how we could change that process.
It is going to require a faster solicitation process with the contractors, a
speedier deliberation on evaluating proposals, looking at streamlined ways we
can get contractors on contract, holding contractors accountable in terms of
what they bid to us, and not just going by the lowest bidder.
The thing I think thatâ??s going to be even more radical up
front is a better way of defining what it is that we want in terms of our
requirements. In particular, itâ??s those spiral kind of capabilities that weâ??re
going to be looking for.
So we have already done some of these things in the past, but
we never institutionalized them. We never really captured them so that
everybody could benefit from them, and thatâ??s going to be one of the keys to
our Agile Acquisition process. Weâ??re going to really institutionalize and make
changes here.
Q: You have been quoted as saying that enterprise
management in the Air Force Materiel Command "ties in perfectly with
Agile Acquisition. Enterprise management shatters stovepipes." Could
you explain the tie-in? What is meant by the second half of your statement?
A: When we started working enterprise management about a
year and a half ago in the Air Force, it was very much tied to breaking down
stovepipes and breaking down our culture and our management approach of just
looking at individual weapons systems instead of looking at the capabilities or
effects that we need to provide to a warfighter.
We have designated enterprise managers or commanders for
aeronautical systems, command-and-control systems, space systems and armament
systems. Those enterprise commanders are making sure that we donâ??t gravitate
back to our old way of just looking at the individual programs without
considering how they fit into the warfighterâ??s needs and concept of operations.
In many respects, Agile Acquisition is very much the same
thing. Itâ??s not just acquiring agilely an individual system, but how we can
assure that weâ??re trying to acquire a set of capabilities or a set of effects
for the warfighter. The two are almost synonymous. I think the timing is very,
very much appropriate for us to expand this to everything we do in the Air
Force.
Q: You further have been quoted as saying that
Agile Acquisition demands revolutionary changes. In what way?
A: The most unique way is in our culture, and how we train
our program managers, how we train ourselves, how we work technology. Again, to
get away from the stovepipes and start looking at how we can aggregate
capabilities, how we can bring together various systems to create an effect
that the warfighter wants and to meet his requirement. Itâ??s about how we
develop systems in terms of spirals instead of trying to do everything all at
once, the way we have been taught to do in the past.
All of these things very well fit together in terms of where
weâ??re going and in terms of where the warfighter is demanding that we go.
Q: Could you describe the new Acquisition Center
of Excellence, its mission, and how it will assist in meeting the goals
you have outlined above?
A: One of the key things we want to do is to adapt best
practices that we find elsewhere. The Acquisition Center of Excellence concept
came from the NRO [National Reconnaissance Office]. Itâ??s something that they
have been using for the last couple of years. What it is from the NROâ??s
prospective is a group of experts who are looking at programs to ensure that
best practices are inculcated across all of their acquisition programs in the
NRO, and to ensure that they are removing barriers and bureaucracies that might
be in the way of doing streamlined acquisition.
The Air Forceâ??s Acquisition Center of Excellence that just
stood up last December is very much intended to be what the NRO has. We want to
ensure that we have an organization that has free range, if you will, to look
for best practices - not just within the Air Force community - but anywhere within
industry, with other organizations like the NRO, and to spread those best
practices across all of the acquisition programs we have in the U.S. Air Force,
to help us to change the culture.
Weâ??ll have surrogates at each one of the centers within Air
Force Materiel Command to ensure that that culture, those best practices are
actually taken down across everything that we do within the acquisition
community. So this really is a best practice that weâ??ve adapted from another
organization.
Q: Although the Center of Excellence is relatively
new, how have you been able to garner any measurable results from its
work?
A: Weâ??re still in the infancy. I think there are examples of
best practices that we are beginning to spread across all of our programs. We
have a set of pathfinder programs that weâ??re going to use for all of our
streamlining initiatives. We want to use them as a stimulus for applying Agile
Acquisition initiatives across the board, and we will then use those as a way
to change the process for the entire Air Force acquisition community.
Q: Why is spiral development superior to the
more traditional linear, step-by-step acquisition and development process?
A: The key is just as I said: to get capabilities earlier
into the warfighterâ??s hands, let him fly it, use it in his concept of
operations, and then use all of that to update the concept of operations and
what the user needs before we make the next spiral improvement. It builds upon
itself in that particular manner.
Q: These programs appear to add value to acquisition
processes contained in Air Force regulations and allows acquisition
partners "to accept reasonable risk and to innovate." What is meant
by "reasonable risk" and by innovation in this instance?
A: We really want to get out of the risk-averse nature that
weâ??ve all been taught to apply to acquisition and development systems. Let me
give you a real-world example: About two years ago, maybe a little more than a
year-and-a-half ago, we had the commander of our Air Combat Command, come to us
and asked, "What would it take - and how long would it take - to put a weapon on a
Predator UAV?"
We initially came back with a relatively long development
and test program because our natural mindset is to reduce the risk down to its
ultimate minimum, to test everything we possibly can - we as engineers and we as
acquirers - before we will go to the user and say that everything is perfect.
We laid out what would have taken about two years of testing
before we would actually answer the question and give that capability to the
warfighter. We were challenged to forget about the risk involved in it. We were
actually authorized to fail, to go and try it even if it meant that there might
be some risk of failure.
With that sort of mindset, we ended up doing that program to
our satisfaction and to that of the warfighter, in the manner of about six
months. And we proved that, yes; you can take a Hellfire missile and fire it
off a Predator. That approach came in very, very handy so that now, as you well
know, weâ??re operating with that particular system in Operation Enduring
Freedom. We are learning a lot by that, and we recognize that we didnâ??t test
every test point; we didnâ??t solve every risk. We used innovation to show that
you can do things quickly, but we were willing to accept some modicum of risk
just to quickly prove we had a capability.
And then along came Sept.11, and now we have that capability
in the hands of the warfighter. We want to apply that approach, use innovation
and become less risk-averse in a lot of our systems that we develop in the Air
Force today.
Q: Is there anything I have not asked that
you would care to add to further define and clarify the mission of your
command?
A: The one key thing is that we have a lot of great people
within our command, and I can say the same thing about my counterparts in the
Army and the Navy. What we want to do is to allow them to use the innovation
that they beg us for everyday. There are a lot of bureaucracies and lot of red
tape that we put in front of them as we told people how they needed to acquire
and develop systems in the past. In some respects, our Agile Acquisition is the
way to get rid of some of the bureaucracy and red tape to allow the great
people to use the innovation that they really want to use and apply to our
systems for the Air Force.