ES_Industry Study_Manufacturing-2012

Spring 2012
Industry Study
Final Report
Manufacturing Industry
The Industrial College of the Armed Forces
National Defense University
Fort McNair, Washington, D.C. 20319-5062

MANUFACTURING 2012
ABSTRACT: In the State of the Union address earlier this year, the President stressed the
importance of rebuilding America’s manufacturing base. Manufacturing remains critical to
developing innovation and building wealth to further our nation’s prosperity. Manufacturing
associated with the defense industrial base accounts for a large portion of the advanced
manufacturing conducted in the United States. Additionally, many commercial products are
linked to defense products either in their means of production or use of technology. Maintaining
a viable defense-manufacturing base during times of expected significant budget reductions
including possible sequestration poses significant challenges and opportunities to the Department
of Defense.
The defense industrial base would be significantly strengthened through the use of
policies that improve the predictability and stability of the revenue streams for defense
manufacturing firms. This report provides an overview of the status of defense manufacturing in
the United States, analyzes the unique challenges within the defense industrial base, and provides
recommendations for the Department of Defense to sustain the industrial base. These
recommendations are focused in five general areas, which follow the theme of the paper.
Specifically this will be achieved through: better government and industry partnering and
communication, assisting firms in the defense industrial base commercialize products, improving
the timing within the acquisition process, easing the restrictions that limit the sale and export of
defense related equipment to allies and expanding the available pool of qualified employees.
With the correct application of these recommendations, the Department of Defense will be able
to significantly improve the viability of the defense industrial base.
Brig Gen Ali Algarni, International Fellow - Saudi Arabia
Mrs. Lisa Barr, DHS
COL Harold Buhl, U.S. Army
Mr. Robert Cameresi, NGA
Mr. Lance Carpenter, USTRANSCOM
LtCol Andre Harrell, U.S. Marine Corps
Mr. Christopher Hegadorn, DOS
Ms. Laura Howard, The Boeing Company
CDR Kevin Moller, U.S. Navy
LTC Rosemary Murphy, U.S. Army
Mr. James Remers, DIA
CDR Jerome White, U.S. Navy
COL Derrin Williams, U.S. Army
COL David Wilson, U.S. Army
CDR Gregory Zacharski, U.S. Navy
Dr. Nayantara Hensel, Faculty
COL Broc Perkuchin, U.S. Army, Faculty
Dr. Stephen Basile, Faculty Lead

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MANUFACTURING 2012 SITE VISITS
DOMESTIC
National Capital Region
BAE Systems, Rosslyn
House Committee on Energy and Commerce
ICAF Seminar
The Boeing Company
Bureau of Labor Statistics
Center for Joint and Strategic Logistics, National Defense University
Center for Strategic and Budgetary Assistance
Congressional Research Service
High Road Strategies
Manufacturing & Industrial Base Policy, Department of Defense
Manufacturing Technology & News
MIT Washington Office
Oak Ridge National Laboratory
PEO Submarines
Y-12 National Security Complex
Johnson Controls Inc, Rosslyn
National Institute of Standards and Technology, Gaithersburg, MD
Renaissance of American Manufacturing Conference, National Press Club, Washington, DC
Safran USA, Inc.
Pennsylvania
Concurrent Technologies, Johnstown
Harley Davidson, York
Kennametal, Latrobe
Kongsberg Defense Corp, Johnstown
Latrobe Specialty Steel, Latrobe
L&S Machine Co, Latrobe
Letterkenny Army Depot, Chambersburg
National Center for Defense Manufacturing & Machining (APEX CNC Swiss, Kennametal Inc,
Pace Industries, Loyalhanna
Penn United Technologies Inc, H&W Global Industries Inc, Impact Technologies, National
Tooling and Machining Assoc)
Maryland
ATK Aerospace Systems, Beltsville
North Carolina
Caterpillar Inc, Clayton
North Carolina State University, Raleigh
Semiconductor Research Corporation, Durham

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Virginia
BAE Systems Space Systems & Electronics, Manassas
Micron Technology, Manassas
National Defense Industrial Association Hampton Roads Chapter, Virginia Beach
Tidewater Government-Industry Council, Virginia Beach
STIHL, Virginia Beach
INTERNATIONAL
London, England
AeroSpace, Defense and Security Group
Fuller, Smith and Turner PLC
UK Governmental Department for Business, Innovation & Skills, Manufacturing Policy
UK Ministry of Defence Industrial Policy
US Embassy, London, Office of Defense Cooperation
Paris, France
French Ministry of Defense, Director of General Armament, Industrial Affairs Department
Organization for Economic Cooperation and Development (OECD)
US Mission to OECD
Reims, France
Vranken Pommery Monopole

TABLE OF CONTENTS
CHAPTER I: INTRODUCTION .......................................................................................................................1
CHAPTER II: INDUSTRY ANALYSIS AND OVERVIEW......................................................................2
PORTER’S FIVE FORCES OF THE U.S. MANUFACTURING INDUSTRY.......................................................2
INDUSTRY PERFORMANCE........................................................................................................................................................3
CHAPTER III: DEFENSE MANUFACTURING AND INDUSTRIAL BASE......................................3
STRENGTHS, WEAKNESSES, OPPORTUNITIES, AND THREATS............................................................................5
CHAPTER IV: CHALLENGES AND CONCERNS.....................................................................................6
STRATEGIC ALIGNMENT AND PARTNERING DEFICIENCIES...............................................................................7
UNCERTAINTY IN DEFENSE BUDGETS AND SPENDING.........................................................................................8
WORKFORCE ...................................................................................................................................................................................10
TRADE CONTROLS, TRADE PROMOTION, INTELLECTUAL PROPERTY......................................................11
CHAPTER V: RECOMMENDATIONS....................................................................................................... 14
RECOMMENDATION 1: STRATEGIC ALIGNMENT....................................................................................................14
RECOMMENDATION 2: COMMERCIALIZATION OF DEFENSE RELATED PRODUCTS AND
TECHNOLOGIES.............................................................................................................................................................................15
RECOMMENDATION 3: ACQUISITION ALIGNMENT AND REFORM .............................................................17
RECOMMENDATION 4: TRADE CONTROLS, TRADE PROMOTION AND INTELLECTUAL
PROPERTY.........................................................................................................................................................................................17
RECOMMENDATION 5: WORKFORCE RETENTION AND LINKAGES BETWEEN DOD & DIB........18
CHAPTER VI: CONCLUSION ...................................................................................................................... 19
APPENDIX A: STRATEGIC ALIGNMENT IN THE DEFENSE INDUSTRIAL BASE................ 21
APPENDIX B: TITLE 10 UNITED STATES CODE ................................................................................ 29
APPENDIX C: SUPPORTING DEFENSE ADVANCED MANUFACTURING................................. 33

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CHAPTER I: INTRODUCTION
“We will not go back to an economy weakened by outsourcing, bad debt, and
phony financial profits. Tonight, I want to speak about how we move forward, and
lay out a blueprint for an economy that’s built to last -– an economy built on
American manufacturing.” 1
President Barack Obama, 2012 State of the Union Address
The manufacturing sector in the United States, and more specifically – defense
manufacturing – is a national strategic asset worthy of support and careful stewardship. As
evidenced by new laws, policies, and the public discourse, it is clear there is growing support
among those responsible for maintaining the U.S. economy and its defense industrial base to
rethink the way we address manufacturing broadly. While jobs and factories continue to be
outsourced, more and more Americans recognize the value of domestic industrial production as a
source of well-paid jobs and economic vitality. In particular, the contributions of U.S. defense
contractors is especially valued, given the significant contributions those firms make in terms of
research and development, product commercialization, export earnings, and to the country’s
basic defense.
The intent of this paper is to provide an assessment and make recommendations to
improve the viability of defense-related manufacturing capabilities within the context of
American manufacturing writ large. In general, the efficiency and viability of the defense
industrial base (DIB) would significantly improve by creating a more predictable and
stable environment. This paper will provide an overview of the manufacturing industry in the
United States, discuss the uniqueness of the DIB, analyze the challenges the DIB is currently
facing and provide recommendations to address and mitigate these challenges. The paper
focuses on five major categories of recommendations; all follow the central theme to improve the
predictability and stability for defense manufacturing firms in the DIB. First, improve the
strategic alignment between defense manufacturing firms and the government through improved
communications. Second, assist defense manufacturing firms to commercialize their products
and technologies to open additional streams of revenue and to recognize economies of scale.
Third, modify the acquisition process to stabilize resource changes and improve communication
with industry. Fourth, make changes to trade controls affecting defense-manufacturing firms to
ease the ability to export while protecting intellectual capital. Finally, leverage the technical
nature of military training to expand the available pool of employees with STEM backgrounds.
This study attempts to present consensus problem definitions and recommendations.
There are many challenges that the manufacturing industry confronts as a whole. They include
but are not limited to a poor image, high corporate tax rates, non-permanent R&D tax credits,
and others. This paper focuses on areas that uniquely affect the DIB where solutions can be
implemented within the Department of Defense (DoD). Additionally, the recommendations and
their associated analysis provide a context for further discussion and consideration but are not
completely executable in their current form. Finally, this paper uses the term “defense industrial
base” when discussing the industry as a whole. Firms within that industry that conduct
manufacturing are referred to as defense manufacturers or defense manufacturing firms.

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Manufacturing is a broad and complex sector of the global and U.S. economies. Even
when the scope is reduced to consider only U.S. defense manufacturing, the complex and
dynamic nature of the sector has multiple issues and solutions that cause reasoned people to
disagree. This paper presents a solution set to the wicked problems that are affecting
manufacturing based on visits with professionals in the industry both domestically and abroad,
the course of study at the Industrial College of the Armed Forces, and personal experiences that
members of the seminar have worked in their professional careers. This paper will begin with a
discussion of the status of manufacturing in the United States and conclude with a set of
recommendations to address specific challenges facing the DIB.
CHAPTER II: INDUSTRY ANALYSIS AND OVERVIEW
PORTER’S FIVE FORCES OF THE U.S. MANUFACTURING INDUSTRY
Understanding the near-term challenges and long-term sustainability of the broader
manufacturing industry as a whole requires an analysis of the forces that shape industry structure
and performance. Porter’s Five Forces Model highlights current and future challenges in the
industry.
Competition/Rivalry in the manufacturing industry is moderate to high and at times can
be fierce. In a global marketplace of business without borders, international competition/rivalry
is intense as cheaper and faster ways to introduce products (durable goods and services) to an
international market continuously improve. Domestic competition is equally high as U.S. firms
expand their global supply chains to capitalize on cost and innovation advantages. As a result,
U.S. manufacturing has realized increased integration (horizontal and vertical), a high number of
exits, and greater firm concentration.
Buyer Power in the manufacturing industry varies by segment. In concentrated
manufacturing market segments with highly unique products buyers are concentrated and wield
significant influence and buying power (e.g. DoD or NASA). In other segments influenced by
competitive pricing, low switching costs, and producer influence, buying power is relatively
weak (e.g. Apple - AT&T).
Supplier Power in the industry ranges from moderate to high. The degree of supplier
power realized is dependent on the manufacturing segment/sector. In segments where the
supplier possesses unique manufacturing capabilities (e.g., 3-D technology) and access to rare
material (e.g., rare earth material) supplier power is very high.
Threat of New Entrants is moderate to high. The highly technical market segments
tend to provide significant barriers to entry due to the high capital requirements, learning curves,
and often government regulation.
Threat of Substitutes in the manufacturing industry is generally very high but varies by
segment. A large percentage of manufactured products can be characterized as commodities. As
such, substitution in the industry is potentially very high. Product substitution varies based on
brand, application, etc. However, with improved manufacturing technology and techniques
improving production costs, product substitution in the manufacturing industry is often driven by
price.

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INDUSTRY PERFORMANCE
Key indicators (number of firms, employment, revenue, profits and exports) provide insight into
the performance of the industry.
• The number of firms in the manufacturing industry has gone down significantly over
the past decade. In 2008 there were roughly 282,000 firms engaged in the
mechanical, physical or chemical transformation of materials, substances or
components into new products. This was down 11.6% from 1998.2
• Employment from manufacturing firms has also dropped. In 2010, there were nearly
10.5 million employees (-3.2% from 2009) with an annual payroll representing
roughly $540 billion (+1.8% from 2009).3
• Although manufacturing sales were significantly impacted during the recession in
2008, there have been recent improvements. According to a recent Industry Week
report, the combined sales revenue (including global sales) of the top 500 U.S.-based
manufacturing firms for 2011 was $5.13 trillion, which was a 12.75% increase over
2010 sales of $4.55 trillion.4
• Additionally, the after-tax profits outlook is hopeful. A March 2012 Census Bureau
report noted manufacturing corporations’ seasonally adjusted after-tax profits in the
fourth quarter of 2011 totaled $146.7 billion, down $2 billion from the after-tax
profits of $148.8 billion recorded in the third quarter of 2011, but up $13.1 billion
from after-tax profits of $133.5 billion recorded in the fourth quarter of 2010.5
• According to the U.S. Department of Commerce, manufacturing accounts for roughly
60% of U. S. exports but the United States has a significant trade deficit that
continues to grow.
There have been significant declines in some areas (e.g., number of firms, employment, etc.)
in comparison to the U.S. manufacturing industry of the past. However, most firms remaining in
the industry are seeing a resurgence of business following the recent recession. The growing
trade deficit and loss of jobs remain the largest concerns due to their ability to affect the
economy as a whole.
CHAPTER III: DEFENSE MANUFACTURING AND INDUSTRIAL BASE
“Our future national security needs require a strong industrial base to provide
technologically advanced weapons and equipment at affordable prices. This in turn requires a
competitive defense marketplace with financially sound companies that are able to attract
excellent technical and management talent.” –Defense Science Board.6
Since World War II, the DIB has been a critical part of America’s economic and military
instruments of power. The DoD has traditionally made decisions on its strategic postures
regarding what kind of wars to prepare for and how to prepare for them in the belief that the
defense industry would be able to support whatever needs it establishes.7
Unlike the mobilization of manufacturers that transpired during the two world wars, the
current defense manufacturers that make up the DIB have held a steady place in enabling the
United States to project force around the world in order to achieve its national interests. The
DIB is a public and private sector industrial complex that has the capability and capacity to

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deliver and maintain military weapon systems, subsystems, components, or repair parts that meet
the requirements of the national security, defense, and military strategy documents.8
Defense manufacturers are at an intersection between the interests of shareholders and the
interests of the U.S. military. It is at this intersection that the government makes it difficult for
companies to thrive. In essence, DoD is both customer and regulator within the industrial base
which creates turbulence among the companies that choose to do business in the defense sector.
What makes this enterprise truly different is that the government has the political muscle to
control the sale or use of commercially produced goods to other potential customers.9
Over the past 20 years, the defense manufacturing sector has grown ever more remote
from being a “free market” in a traditional sense. It has become a monopsony and has evolved
into a niche industry servicing a narrow and highly technical market defined as:10
• A market of one buyer that is also the regulator and a handful of major sellers that in
many cases are required to collaborate with one another
• A market with many barriers to entry and little in the way of usable and timely
information
• A market where a product considered as urgent “must have” requirements for one
administration, one service chief, or one year’s budget request, can rapidly become an
excessive and exquisite “nice to have” for another
The defense manufacturing sector is similar to a typical market in one important sense -
firms seeking higher profits and more stable conditions can go elsewhere. Many already have,
and more may yet follow. Other nations, including some of our closest allies, comprehend these
realities and have adopted systematic, comprehensive policies to sustain what they consider to be
strategic national assets.11
The defense manufacturing sector is uniquely aligned to produce cutting edge equipment
for the military. The DIB is distinguished by the customer it supports. The DIB is subdivided
into segments and sub-segments that produce weapon system platforms, components, and
expendables. This taxonomy is used throughout DoD to classify the contributions of particular
DIB assets, as well as to analyze the criticality in each of these areas.12
See Table 1 for a
description of DIB segments and sub-segments.
Table 1: DIB Segments and Sub-segments13

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The industrial base and defense manufacturing are not on the verge of collapse. Still, the
DIB has become constrained by the decreasing investment, culmination of conflicts, and the
global economic downturn. In a Center for Strategic and Budgetary Assessments (CSBA)
report, Barry D. Watts stated:
The US defense industrial base is not on the brink of imminent crisis or near collapse.
The industry remains fairly innovative, relatively strong, and is capable of supplying
American soldiers, sailors, marines, and airmen with world-class weapons and systems,
even if they tend to reach the fielded forces later than expected and at increasingly higher
cost than initially anticipated. Perhaps the most fundamental issue is the degree to which
the American defense industry will, in decades ahead, continue to be an enduring source
of strategic advantage.14
The DIB has emerged from the global economic downturn frail in some areas with its
future strength being impacted by domestic government decisions as well as global market
conditions. President Barack Obama stated, “The nation’s manufacturing base is the engine of
growth and is critical to the economic recovery of the United States.”15
The President’s
emphasis on manufacturing is warranted because the manufacturing industry is not just critical
for the economic recovery of our country but serves as a critical underpinning of our national
instruments of power.
The DIB is a national strategic asset that has provided the United States with a marked
military advantage for more than six decades. It comprises and contributes significantly to many
areas beyond just strictly defense needs, but the system is not perfect, there is room for
improvement. As such, a main concern is whether the DIB is at risk of decaying to a point
where it will not be able to provide the weapons systems this country needs in the future.
STRENGTHS, WEAKNESSES, OPPORTUNITIES, AND THREATS
The U.S. military services and the DIB underwent major changes during the past half-
century, but not all of these
changes have been for the
better. If one had to choose an
“industrial complex” that has
stood above all others since the
early 1940s, and continues to
play a significant role in
defense readiness, the
American military-industrial
complex would be the nation’s
top choice.16
An analysis of
the DIB reveals mixed results
related to strengths,
weaknesses, opportunities, and
threats of the defense industrial
and manufacturing sector. The

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following analysis focuses on those strengths, weaknesses, opportunities, and threats specific to
the DIB for the purposes of this paper.
Strengths and Weaknesses: Internal Focus. Strengths and weaknesses primarily focus on
those areas in which the DIB has control and the ability to fix without external influence. When
discussing the strengths of the DIB, it is important to note America still has the largest defense
budget in the world and the government can create stability and predictability through
spending.17
When discussing the weaknesses, there are significant issues when it comes to
supply chain visibility and alignment among government and industry efforts. The impacts of
these weaknesses are further articulated in the Challenges section of this report.18
Opportunities and Threats: External Focus. Opportunities and threats primarily focus on those
external areas that impact the DoD and may not be within the DoD control. With the drawdown
of forces in both Iraq and Afghanistan, the peacetime environment presents an opportunity for
the DIB to reinvent itself. Areas of opportunities highlighted in the table focus on increasing
collaboration to create a stronger DIB by reducing inefficiencies and redundancies. The
globalization of the DIB provides an opportunity to enable costs savings through increasing
international market structures, introducing new technologies, and potentially achieving
economies of scale. Threats addressed in the table focus on those areas that create uncertainty in
the DIB. The challenges facing the DIB have the potential to influence the ability to meet
America’s national security interests and are discussed in more detail in the next chapter.
CHAPTER IV: CHALLENGES AND CONCERNS
In order to support America’s national security interests in the 21st
Century, it is
imperative a robust DIB be maintained today, tomorrow, and into the future. There are several
factors, which contribute to the growing unease of what may become of the DIB in the coming
years. Challenges addressed in this section focus on the unpredictability and uncertainty the DIB
faces when supporting the DoD. These include:
• A continued lack of coordination among government leadership, throughout federal
agencies, and with private industry. While there are significant efforts focused in this
area, more efforts are required. In an era of flattening and declining defense budgets,
industry leaders receive little useful guidance that allows them to best target
investments in people, facilities, and technology based on the military’s future needs
• Unpredictable defense budget leads to increased risks on defense manufacturing
firms, more costs passed onto government to offset the risks, as well as corporations
shedding defense business components due to increased risk and declining returns on
defense programs that are incompatible with industry fiduciary responsibilities
• A significant loss of industrial skill middle-class jobs without expansion in higher
skilled knowledge and information sectors. This may result in a situation where a
shift in the global security dynamic that requires the production of new weapons may
have an industry that is unable to reconstitute much of its skilled work force and
production capacity, resulting in higher cost related to time and resources. 19
• An environment that places U.S. firms at a disadvantage due to difficulties from the
export control processes and non-enforcement of intellectual property right
protection.

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Given the concerns above, the fiscal contraction facing the DoD, the politically charged
environment of an election year, as well as the public up swell of support for growing
manufacturing in the United States, it is more important now to address these issues. These
challenges are not new to the DIB but the fact that these issues continue after years of awareness
is significant and concerning.
STRATEGIC ALIGNMENT AND PARTNERING
DEFICIENCIES
The DIB encompasses all assets and services used in the
acquisition, production, support, maintenance, and sustainment
of a weapons system or platform that is utilized by the U.S.
military in training or combat. “References to the Defense
Industrial Base that imply a monolithic entity are not
[analytically] useful. There is a defense market serviced by a
diverse selection of companies which span, and often reflect, the greater global economy for
goods and services.”20
Arguably, the only national policy that provides any strategic direction or
alignment for the long-term sustainability of the DIB is provided (indirectly) from the National
Security Strategy, National Defense Strategy, National Military Strategy, the Quadrennial
Defense Review and most directly, the defense budget. The annual changes to these documents
as well as a lack of prioritization contribute to the environment of instability and
unpredictability.
A significant portion of this problem was illustrated by a July 2008 report by the Defense
Business Board (DBB) Task Group on a strategic relationship model. They raised a concern
regarding the industrial base, namely, that the level of communication between DoD and
industry was inadequate.21
A clearly articulated view of the desired customer/supplier
relationship and narrow legal interpretation of allowable communications between customer and
supplier are two of the major contributors of the current condition. This is compounded by the
fact that most dialogue is conducted with the major primes, while second and third tier
companies and suppliers are left out.
“If I can't talk to people and I can't get basic information, what happens? You are then
forced to recruit retiring military people because that is the only way you get to
understand what is going on inside, which then raises the specter of the issue of what is
going on, and so I tighten laws about that, and then I get even more and more removed
every step of the way until the point where I can't talk to my basic customer in order to
understand what is going on.”22
Arguably, DoD and industry (as a whole) are not aligned based on the aforementioned
conditions stated and the disconnected motives between private sector shareholder interests
(profit margin) and the urgent operational readiness requirements of the military. DoD’s
unpredictability, acquisition complexity, and budgetary turbulence has further fractured this
unique symbiotic relationship and forced the DIB to form diverse business strategies regarding
consolidation, product differentiation (commercial and military) and globalization to remain
competitive.

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The lack of strategic alignment has a large impact on the viability of the DIB in that:
• Suppliers do not know where to invest their limited R&D dollars to best support the
military and respond to demand requirements
• Industry’s role in shaping military capability requirements is more likely to lead to
technical “overreach” on requirements
• It can result in cost, schedule, performance, and sustainment problems in acquisition
programs23
UNCERTAINTY IN DEFENSE BUDGETS AND
SPENDING
As articulated in the SWOT analysis, there are
significant challenges that create instability and uncertainty for
defense manufacturing firms. This section highlights challenges
with reductions in spending and a misalignment between
budgeting and requirements.
Spending Reductions from FY13 Budget Request. As a result
of the Budget Control Act, U.S. governmental leaders have focused on the DoD to help achieve
budget and deficit reductions of $1.2 trillion. The national defense budget, representing 19% of
budget authority in FY2011, ranked among the top three government-spending areas; Medicare
and Medicaid represented 22% and Social Security represented 20%. The Budget Control Act
passed in 2011, requires a reduction in defense expenditures by approximately $487 billion over
the next decade and $259 billion over the next five years with threats of additional $600 billion
in discretionary spending cuts by 2021. A significant burden has been placed on DoD to find
ways to reduce spending while maintaining the capability and capacity to protect and defend
America as well as support allies.
The FY2013 budget request submitted to Congress requests an increase in overall federal
government funding support for research and development (R&D). Although there is an increase
in total requested amount for R&D, the budget request for defense related R&D is being reduced
from the FY2012 request. The R&D budget request is summarized below in Table 2.
Table 2: Summary of FY13 Budget Request for R&D (in millions of dollars)24
FY13 Budget Request for
R&D
FY13 Request Change FY12-
FY13
% Change
Total R&D $140, 820 $1,951 1.4%
Defense R&D $75,895 - $1,125 - 1.5%
NIST R&D $1,884 $1,329 239.4%
Energy R&D $2,644 $369 16.2%
NSF R&D $5,904 $224 3.9%
Total Basic Research $30,627 $449 1.5%
Defense Basic Research $2,116 $5 0.2%
Total Applied Research $33,369 $1,586 5.0%
Defense Applied Research $4,477 - $260 - 5.8%

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While funding for DoD related R&D is being reduced, the funding levels for the other key
federal departments with programs driving innovation in manufacturing are all being increased.
Given the significant reductions in applied R&D, defense manufacturing firms are at a
disadvantage in developing marketable products and there will be less innovation in the DIB.
Sequestration. The DoD has submitted the FY2013 budget without planning for sequestration.
The two issues with sequestration are the magnitude and mechanism of the budget cuts. It is
mandated that the cuts are uniform across the department. If the sequestration cuts are taken,
DoD will be one quarter into their fiscal year before the cuts are required. The President has the
ability to fence off manpower so that personnel do not have any additional cuts in FY13. In
order to achieve the budget cuts from sequestration, O&M, training and procurement will be
impacted. The overall cost to the DoD is yet to be determined. However, there is no doubt these
large cuts will have a significant impact on the defense manufacturing base due to the significant
reductions in procurement.
In a joint treatise to the Secretary of Defense, Marion Blakey, President and CEO of the
Aerospace Industries Association, Lawrence P. Farrell, Jr., President and CEO of the National
Defense Industrial Association, and Stan Soloway, President and CEO of the Professional
Services Council, documented their view of defense budget cuts. 25
They discussed the impacts
of both the planned defense program cuts and the effects of sequestration, specifically:
• Uniquely skilled labor will be laid off
• Worker skills will be difficult to regenerate when needed
• Defense supply chains would be heavily impacted 26
• Suppliers would migrate away from DoD business
• Reduced competition
• Reduced capabilities27
Acquisition Cycle Inconsistencies and Timing. The annual budget cycle for the nation is
modified in the defense sector by a planning, programming and budgeting process28
that is
intended to provide predictability in procurement, research, and development. This predictability
is reinforced in the multi-year authorization of money under categories such as RDT&E29
and
MILCON.30
This intended predictability is subverted by Congressional and Executive branch
changes within the cycle. Congress has absolute authority to authorize and appropriate money as
they deem necessary within the cycle. The Executive branch also has authority--granted to it by
Congress to make budgetary adjustments in cycle. 31
In recent practice, both branches have
favored budgetary turbulence over predictability. 32
The annual DoD budget process makes it
difficult for defense manufacturing firms to plan beyond one year.
This predictability is most critical to the DIB. The lack of predictability and stability in
defense spending leads to defense firms being unwilling to commit to business decisions. This
leads to:
• The inability to make business case analysis for investment decisions and work force
stability
• Unwillingness to invest in R&D due to long lead time from results (typically 3+
years)

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• Unwillingness to make capital investments due to large upfront cost and inability to
determine a reasonable estimate at the break-even point
• Increased risk that leads to extra costs passed on to the government
• Failed procurement efforts due to an inability to respond to change within the 18-24
month schedule that must precede capability acquisition
• The industry migrating away from government work leading to loss of skills and
technology development
By disciplining executive budgetary adjustments, the manufacturing base will have additional
certainty they need to develop and deliver capability with reasonable and manageable risk.
WORKFORCE
As noted in a recent Commerce Department report on
American competitiveness and innovative capacity33
,
“increasingly, the specific skills embodied in science,
technology, engineering, and mathematics (STEM) education
fuel the innovative processes that are especially valuable to our
economy.” While the STEM workforce is expanding, with
growth in STEM jobs over the past decade growing three times
faster as in non-STEM jobs, there are remaining concerns that the U.S. is not producing
sufficient numbers of STEM graduates to adequately compete with other nations –
predominantly in Europe and Asia – in high tech, cutting-edge manufacturing. According to
Aviation Week and Space Technology, the average age of an aerospace and defense engineering
worker is 45, with 22% of the work force under the age of 35, only 20% between 35-50, and the
remaining 58% over 50 years of age. In fact, 13% of this workforce is eligible now for
retirement.
This workforce also suffers from a lack of diversity; women and minorities each make up
barely a quarter of the workforce. Voluntary attrition in the more youthful segment of the
workforce is extremely high: 14% annually as opposed to 10% for the overall industry.34
Additionally, defense-manufacturing workers do not recommend the industry to their children.
Innovation is restrained, as the industry ranks dead last in patents per employee. Security
clearances are frequently required, further constraining the workforce; employees must be U.S.
citizens and be able to meet the requirements of clearance processing.35
In the U.S., fewer than 30% of U.S. high school students take physics and fewer than
25% take pre-calculus. The percentage of STEM graduates declined from 32% of all post-
secondary degrees awarded in 1995 to 27% of all degrees awarded in 2004. While the number of
graduate degrees awarded has remained stable, foreign students mostly make up the difference
(i.e., not U.S. citizens and, hence, often not eligible for employment in the defense
manufacturing sector).36
The Washington Post notes that high-tech manufacturing has dropped by more than a
quarter since the year 2000.37
The Manufacturing Institute also reports that a shortage of
600,000 skilled workers exists in the manufacturing sector, presenting 82% of manufacturers
with moderate to serious skilled labor shortages.38
Younger workers often do not seek

11
manufacturing careers because many view manufacturing as a dying industry. At the same time,
the “Baby Boom” manufacturing workforce is quickly reaching retirement age, and taking their
skills and experience with them.
The National Strategic Plan for Advanced Manufacturing, published by the White House
in 2012, attempts to address these demographic issues39
in part by “expanding the number of
workers who have skills needed by a growing advanced manufacturing sector and making the
education and training system more responsive to the demand for skills.”40
The plan
recommends more money for STEM education in secondary schools and community colleges,
new apprenticeship programs to give students hands-on experience, and a “Skills Certification
System” advocated by the National Association of Manufacturers (NAM).41
Recognizing the
significant contributions to U.S. manufacturing made by foreign students/graduates and
temporary workers, the Administration seeks to continue/expand the H-1B visa program to allow
U.S. companies to hire skilled foreign workers for manufacturing work.42
Such workers can
perform non-classified work and backfill workers who can be utilized for defense-related jobs.43
The DIB needs to have a viable workforce that can meet the national security needs of the
United States in the decades to come. The current workforce faces distinct challenges: the
average age of the workforce is higher than most other industries, the country faces an overall
shortage of STEM high school and college graduates, and the available STEM graduates are in
high demand by both the Department of Defense and corporate America. Fewer highly trained
STEM workers will have significant impacts on the DIB, specifically resulting in:
• Reduced innovation
• Inability to meet DoD product demands
• Excessive product costs to reconstitute skills to meet product demands
• Larger competition for a limited pool of qualified workers resulting in additional
costs
TRADE CONTROLS, TRADE PROMOTION,
INTELLECTUAL PROPERTY
The Obama Administration is working to reform the
export control system to promote U.S. defense manufacturing
while protecting national security interests at home and abroad.
While certain controls will always remain in place, reforms are aimed at improving bureaucratic
procedures to quicken application processing times, clarify jurisdictional boundaries, and
improve coordination with key allies. To date, considerable progress has been achieved.
Improving and streamlining the U.S. system of export controls will strengthen U.S. defense
manufacturing through providing reliable markets that may offset the cyclical nature of U.S.
defense spending.
Mercantilist policies and unfair trading practices of key industrial competitors, along with
shrinking U.S. defense budgets, requires new thinking and new business approaches for
preserving a robust American defense industrial base. Various policy changes as well as
individual firms looking for every opportunity to increase foreign sales and servicing contracts is
required to broaden the revenue base available to defense manufacturing firms. Small and
medium-sized firms rely too much on the North American market without making the

12
investments required to acquire market share overseas. With U.S. defense spending on the
decline, these firms will need to think internationally, partner with firms abroad, hire multi-
lingual, multi-cultural staff, and create networks of offices and suppliers to help them win
contracts and compete globally. Other countries are already working hard to support their
domestic producers to export, especially in high-tech, advanced manufacturing sectors, which
will prove vital for U.S. defense firms.
Areas of continued focus for the administration are International Traffic in Arms
Regulations (ITAR) - administered by the Department of State and the Commercial Control List
(CCL) - administered by the Department of Commerce. Additionally, intellectual property rights
protection is a continued challenge given the need to broaden the defense-manufacturing base.
International Traffic in Arms Regulation. The Department of State (DoS) Directorate of
Defense Trade Controls (DDTC) is responsible for the control of export and temporary import of
defense articles and services covered by the U.S. Munitions List, in accordance with 22 U.S.C.
2778-2780 of the Arms Export Control Act (AECA) and the International Traffic in Arms
Regulations (ITAR) (22 CFR, Parts 120-130).44
Likewise, the Department of Commerce
regulates exports of conventional weapons and systems. Among the items on the ITAR
Munitions List are space and missile items, night vision goggles, certain aircraft and electronic
systems, and certain small weapons and firearms. According to the DDTC website, 6,938
license applications were received in January 2012, 6,430 applications were closed, with an
average processing time (calendar days) of 20 days.45
On March 21, 2012, the DoS DDTC issued a final rule amending the ITAR to implement
the Defense Trade Cooperation Treaty between the United States and the United Kingdom,
signed in 2007 along with a similar treaty with Australia (not yet entered into force). The Senate
gave its advice and consent to the U.S.-UK Treaty on September 2010, which entered into force
in mid-April, 2012. This treaty, reflecting the strategic ties between two allied nations, is
intended to improve inter-operability between the military services (a key goal of the most recent
QDR). UK manufacturers and officials recognize the treaty’s significance as a potential
facilitator of trade and inter-operability yet question the large number of exempted defense
articles and are withholding judgment for the time being. The DoS and DoD should consider
expanding the list of allies with whom we have such agreements, and look to minimize the list of
exempted items.
Drawing on the U.S. “Munitions List,” ITAR applies to all items and information
designed for military or intelligence purposes, while the CCL covers items and information
considered “dual use” – that is, items or information with both military/strategic and commercial
application. Among the biggest critics of such controls are defense manufacturers who feel their
competitiveness in international markets is undermined by ITAR/CCL, and foreign firms whose
freedom of action to re-transfer U.S. defense products is limited by U.S. laws.
Example: Commercial Satellites
The commercial satellite industry has suffered perhaps the most over the past decade
from stringent export controls – applied in 1999 following a report of the Cox Commission,
which reported on transfers of missile-related technology by U.S. firms to China’s space

13
program. The controls put in place are responsible for significant damage to the U.S.
commercial satellite industry (including the loss of 28,000 jobs per year, on average, between
1999 and 2008, along with $21 billion in revenues) - according to the Aerospace Industries
Association. Despite these losses, Congress has not changed the law governing licensing
procedures or jurisdiction for communication satellites (comsats) – which remain the only
USML items for which jurisdiction is mandated by law).
The commercial satellite example highlights how the DIB is impacted by the current
export control regulations. Additionally, these regulations impact the industry through:
• Significant loss of foreign market share
• Inadequate interoperability with allies due to the U.S. being the sole purchaser of
equipment
• Reduced economies of scale resulting in higher costs for the government
• Firms exiting the DIB to conduct business in an environment that does not have the
same regulatory burdens
• Unwillingness for other countries to include U.S. controlled technologies due to
restrictions with further marketing to third parties
Protection and Enforcement of Intellectual Property Rights. Intellectual property rights (IPR)
protection is often cited as one of America’s major strengths for domestic manufacturers.
However, IPR is threatened by foreign rivals that have been able to gain global market share
from U.S. companies through outright theft, counterfeiting, and lax enforcement of global and
domestic rules related to IPR. In particular, cyber theft has been a key method of massive theft
of intellectual property from the U.S. by industrial competitors and foreign governments. This
impacts defense manufacturing despite its extra layers of security and protections.
Advanced technologies are driven by innovation, for which effective IPR enforcement is
critical. Recognizing this fact, the Obama Administration is strengthening IPR protections and
enforcement. In testimony before the House Energy and Commerce Committee April 2012,
Commerce Secretary John Bryson outlined the steps taken to benefit American manufacturers
with respect to IPR protections.46
As part of the America Invests Act of 2011, Bryson noted that patent applicants have the
option of paying extra for a faster processing track – speed to market being a critical issue for
advanced manufacturing technologies. Furthermore, the U.S. Patent Office has succeeded in
significantly reducing its application backlog and is now implementing a new outreach program
to educate American manufacturers about IP development and protection strategies. The
America Invents Act also enhances the “prior user rights” defense to infringement actions,
helping level the playing field for U.S. industries against foreign competition.47
Intellectual property theft often takes place overseas, where laws may be lax and
enforcement more difficult. Using the Internet, cyber thieves’ work to surreptitiously gain
access to computer files across the globe, with high-tech and defense companies particularly
attractive targets. Such theft costs U.S. businesses billions of dollars a year and robs the U.S. of
high-paying manufacturing jobs and the tax revenues that accompany them. Recent examples of
counterfeits impacting defense industries include: counterfeit transistors found on the Forward-

14
Looking Infrared System (FLIR) aboard the SH-60B helicopter and in the microchip market
supplying the Missile Defense Agency (MDA). In the MDA case, 1,700 supposedly-new
memory parts from an unauthorized distributor showed signs of previous use, prompting MDA
to strip 800 parts from assembled units. In a stockroom sweep, 67 used frequency synthesizers
were found to have been re-marked and falsely sold as new parts.”48
These are just a sampling
of the challenges faced in intellectual property rights and the counterfeiting of materials. It is
readily apparent that these challenges will continue especially as technology advances, lack of
attribution continues to remain an issue, and as long as the United States remains a treasure trove
of information for competitors.
The concerns over IPR affect the DIB through:
• Increased costs due to infrastructure requirements to establish adequate protection
• Billions of dollars in lost revenue for firms and lost tax revenue for the government
• Reduced comparative advantage of innovation due to reduction in the timing for
competitors to produce similar technologies
• Increased likelihood of counterfeit supplies being incorporated into defense products
• Reduced U.S. technological advantage over competitors and adversaries
CHAPTER V: RECOMMENDATIONS
To address the challenges occurring in this
environment of contracting budgets, growing uncertainty
and lack of predictability, the recommendations in this
section capitalize on the opportunities to strengthen the
viability of the DIB.
ROLE OF GOVERNMENT
When seeking to help and solve manufacturing
problems, an assumption of policy elimination and de-
regulation can be a strong incentive for innovation and investment. The emphasis for the
government should be to improve the predictability and stability of funding for defense
manufacturing firms through manufacturing policies to create an environment that fosters:
• A free and open market; allow for market forces to drive the shape of the industry
• Competition to encourage innovation and uniqueness in defense products
• Reduced barriers to entry for small and medium businesses to enable more firms to
join the DIB and foster additional competition
• Not directly funding firms to maintain them when normal market forces would force
them from the DIB
• R&D in areas that are not financially feasible for small and medium sized firms in the
DIB
The following recommendations address the threats and weaknesses presented in the challenges
section while maintaining the intent of an environment discussed above.
RECOMMENDATION 1: STRATEGIC ALIGNMENT
The DIB has always operated in an acquisition and business environment challenged with
difficult communications due regulatory requirements and unpredictability. While there are

15
significant efforts underway to address more government and industry collaboration, DoD and
industry must build a stronger structured approach to partnering that links the inputs and outputs
of the private and public sector to the performance driven outcomes of defense readiness. This
link must be formed by a policy and process that is collaborative and responsive. There are two
approaches to improving this strategic alignment. Both address improving the communications
and alignment between industry and government to allow firms to anticipate the needs of their
customers better, allowing more long term planning capability.
Strategic alignment is not government control or intrusion into the free market.
Communication (live, virtual, and through information architectures) to minimize uncertainty
between government and industry—following applicable statute—as part of strategic alignment
is intended to minimize uncertainty and allow for more informed business decisions. These
business decisions, based on more confident data thus lower business risk, and result in better
rates and lower costs to the government.
Recommendation 1-1. Improve leadership and stakeholder involvement and
communication through teaming. Implementation of strategic alignment must first incorporate
leadership buy-in (top-down) and resonate through operational execution (bottom-up). Policy
formulation must be a collaborative process between DoD and industry and communicated
vertically to everyone within the leadership chain. Horizontally, all stakeholders must be able to
communicate to improve the processes and have increased visibility of others’ needs and
weaknesses as well as have periodic access to senior leadership to discuss and improve on
shortcomings in the process.
Within this construct, formal cross-functional and executive teams would be established
with operational leads identified for every major weapon system or platform. The intent is to
ensure the operational forces stay actively engaged with senior DoD and DIB leadership
regarding readiness and to ensure problems can be communicated to both senior leadership and
the people that can execute the solutions.
Recommendation 1-2. Develop an information system to improve transparency that links
every element of the acquisition lifecycle to each stakeholder. Develop a system architecture
based on one common DoD/DIB business language, which will link DoD and industry to have
visibility on all relevant metrics to determine readiness. Gaps and disconnects would be
eliminated based on structural collaborative data sharing and analysis predicated by operational
readiness, predictability, and budget resource allocation and execution. The development of this
system would be very challenging because it combines fundamental aspects of acquisition,
sustainment and product support from two dynamically divergent informational and proprietary
architectures (DoD and industry). However, if implemented, the benefits would be
immeasurable. See Appendix A for additional detail on the data and connections within this
system.
RECOMMENDATION 2: COMMERCIALIZATION OF DEFENSE RELATED
PRODUCTS AND TECHNOLOGIES
Instability of funding streams due to the government budget cycle leads to
unpredictability. Enabling commercialization of products and technologies designed for defense

16
and security will help open additional funding streams for defense manufacturing firms.
Additional funding streams beyond those required for defense will provide a more fiscally stable
environment that businesses and the government will benefit from. Businesses will benefit
through stability and the government can realize cost reductions by firms having economies of
scale in production.
Recommendation 2-1. Increase funding to ManTech and Defense Production Act
programs that help defense manufacturing increase revenue streams and reduce costs.
There are several initiatives aimed at engaging private industry to fund R&D efforts. These
current initiatives are successful due to their ability to create more defense revenue streams for
industry, reduce costs for defense, develop technology that would be impractical for a small
business to pursue, and create a bridge to commercial products improving economies of scale.
ManTech. The main focus of ManTech has been to bridge the gap between innovation and
production to keep defense acquisition costs lower. These investment funds could be leveraged
more to help improve the efficiency and operating margin for firms producing critical
technologies. NDIA provides the following recommendation:
The DoD ManTech program is underfunded. According to a 2006 Defense Science
Board study, funding for ManTech should be approximately 1% of the defense R&D
budget. Funding for ManTech should be about $700M but is currently being funded at
approximately $200M. Historically, this program has saved the government billions of
dollars in savings and cost avoidance. In these times of reduced budgets, additional
spending towards ManTech could be significantly beneficial. 49
Defense Production Act Title III Funding. Title III provides a set of unique economic
authorities to incentivize the creation, expansion or preservation of domestic manufacturing
capabilities for technologies, components and materials needed to meet national defense
requirements.50
The 2011 Annual Capabilities Report to Congress lists 29 projects being
conducted under Title III requirements with government contributions totaling $460.8 million.51
As an example of the benefits of this program, in FY10 a Title III funded program was
completed with Cree Inc. to expand the production capabilities of Silicon Carbide Monolithic
Microwave Integrated Circuit Devices for use in the Army’s Joint Tactical Radio System
(JTRS), Counter Radio-Controlled IED Electronic Warfare (CREW) program and high quality
light emitting diodes (LEDs). The ability to expand production has significantly reduced the cost
to the DoD through economies of scale.52
Recommendation 2-2. Restore the defense-applied research funding levels to the same
amount or higher as the FY12 budget request. Applied research funding has the most
significant effect in supporting corporations turn innovative ideas into marketable products. As
funding for procurement is reduced, the need for firms in the DIB to continue to develop
products to ensure strong revenue streams will be critical. Removing funding from this area
cripples the industry’s ability to develop products.

17
RECOMMENDATION 3: ACQUISITION ALIGNMENT AND REFORM
The DIB is a manufacturing driver within the U.S. economy. This driver is fueled by the
interaction three complementary systems--the Defense Acquisition System (DAS), the Planning,
Programming, Budgeting, and Execution (PPBE) cycle, and the Joint Capability Integration and
Development System (JCIDS). On top of these three systems is the Joint Staff and Service
bureaucracy. Friction between these systems as they work through Joint and Service staffs is
good. This friction forces substandard and low priority programs out of the Department. In an
era of decreased resources however, this friction can also be bad. The waste generated in this
friction is taxpayer money. Paying down risk, managing regulatory burden, and uncertainty are
the tangible examples of this waster. More efficient linkages between these systems can reduce
waste and improve the stability of the system.
Recommendation 3-1. Stabilize resource changes within the DoD using time and threshold
limits at high decision levels. Changes to budgets across programs and within DoD provide
flexibility, but add significant risk and cost to all programs. Limits on budgetary changes based
on time and threshold is a reasonable initiative to balance flexibility and predictability within an
acquisition. Examples include no budget changes within a 2-year appropriation unless there is a
test failure or gross incompetence, no changes to efforts under $10M in a 2-year appropriation,
and all changes of more than 20% total value approved by Milestone Decision Authority.
Recommendation 3-2. Integrate Combatant Commands into the Capability Requirements
Process. Services retain capability requirements approval short of the Joint Requirements
Oversight Council (JROC). Change across requirements, resources, and management lack
discipline following this approval. A disciplined change process must include the warfighting
combatant commanders to assign prioritization of capability requirements within a program.
This cooperation ensures that both force-driven and event-driven interests are communicated
with the materiel developer to synchronize with resource and management systems, and increase
predictability for DIB.
Recommendation 3-3. Supplement JCIDS with a cyclic Joint Warfighter Involvement
Process (WIP). Following JCIDS approval of a new start program, that program each two years
gets a requirements prioritization from the warfighter every two years. The Service and a
sponsor Combatant Command cooperate with all stakeholders to provide the materiel developer
more feedback. With these adjusted requirement priorities, the program manager enters a battle-
rhythm to conduct analysis, systems engineering, program modification, and contracting to
deliver on the adjusted priorities. Aligning WIP as a feeder for the PPBE process will lower
friction, increase predictability, and enable DIB to manage risk more effectively—reducing
government costs.
RECOMMENDATION 4: TRADE CONTROLS, TRADE PROMOTION AND
INTELLECTUAL PROPERTY
In an era of a reduction in defense items procured from private sector manufacturers, the
U.S. government should look at ways to strengthen systems in place aimed at controlling
technologies, preventing proliferation, and protecting against intellectual property theft. In
general, such steps would help ameliorate the expected reductions in domestic defense
procurement that U.S. defense manufacturers are likely to face in the coming years and help

18
stabilize the DIB. To strengthen the likelihood of their survivability, federal policies can assist
these firms to compete more aggressively for industrial market share outside North America, and
can help level the playing field with respect to U.S. treatment of foreign firms operating and
selling in the United States.
Recommendation 4-1. Review the International Traffic and Arms Regulation (ITAR) and
the Commercial Control List (CCL) for currency and relevance now and on a regular and
continuing basis. Remove items from restricted lists for which currently available public
domain technologies exist or technologies that are more current have supplanted. Specifically,
remove commercial satellites from the U.S. Munitions List (USML). Aggressively pursue
reductions in bureaucratic processes that add no value.
Recommendation 4-2. Strengthen the U.S. – U.K. Defense Trade Cooperation Treaty by
removing exemptions and pursue similar agreements with other key allies. Look to narrow
the list of items exempted from that agreement. Using the U.S.-U.K. treaty as a template,
consider additional agreements with key U.S. allies and other countries whose potential for
expanded market share for U.S. defense manufacturers is greatest.
Recommendation 4-3. Level the playing field through enforcing current international rules
and agreements. Continue efforts by USTR, State, Commerce, DoD, and others to level the
international trade policy playing field by aggressively pursuing business opportunities for U.S.
defense firms, insisting upon fair compliance and application of international trading rules, and
assisting U.S. firms through existing tools and mechanisms such as export finance, trade support,
and enforcement of IPR rules.
RECOMMENDATION 5: WORKFORCE RETENTION AND LINKAGES BETWEEN DOD
& DIB
The ability to maintain a quality workforce plays a key role in establishing predictability
and stability within the DIB. The DIB needs to have a viable workforce to produce items needed
for ensuring the national security needs of the United States in the decades to come. The current
workforce faces distinct challenges from aging workforce to an unfilled demand for qualified
applicants. There are several national level efforts currently in progress to address shortcomings
within the U.S. education system as well as improving immigration policies. These problems
affect manufacturing in the nation as well as defense manufacturing firms.
One area where DoD can help overcome manufacturing’s workforce-related challenges is
through its recruitment, training, and post-service job placement efforts for non-career service
members. In many countries, the military is a key source of workforce talent, especially in high-
tech, cutting-edge industries related to modern defense. Israel and Singapore, for example (while
having systems of compulsory national service) actively recruit talented men and women into
elite units known for innovation and technical prowess. In Israel, graduates of such units are
often highly sought by local employers, and are disproportionately represented among new, high-
tech start-ups listed on major international exchanges.53
DoD can do a better job of strengthening policies on recruitment, training, and post-
service placement to strengthen the nation’s defense industrial base. Particularly with the large

19
number of young veterans with combat experience in Iraq and Afghanistan, DoD can make
valuable contributions by working more holistically to recruit talent, develop high-tech skills
relevant to the defense industrial sector, and convince U.S. businesses of the value of hiring
veterans with technical skills.
Recommendation 5-1. Seek to link military recruitment, in-service professional training,
and military skill codes with after-service job placement in the military/defense
manufacturing sector. The DoD can help incentivize those serving in the armed forces to enter
the defense industrial workforce, particularly small and medium-sized firms and new high-tech
start-ups working on innovative technologies and contemporary security threats. The DoD
should do more to recruit those with engineering and technical skills. Likewise, DoD should do
more to identify those serving with the highest technical aptitudes and steer them toward jobs –
both during and after their military service – relevant to defense manufacturing.
CHAPTER VI: CONCLUSION
Defense manufacturers are already making changes in their medium and long-term plans
to adjust to fewer federal dollars being spent on defense. Some are moving more toward
commercial markets for their goods and services. Those firms that are not preparing will likely
be at risk. Additionally, the uncertainty over future defense spending has forced many firms to
cut back on R&D and capital investments. This paper proposes ways to address the challenges
faced currently and in the coming decades for the DIB is to have the Administration, Congress
and DoD improve predictability and stability for defense manufacturing firms. This
predictability and stability reduces the risk to defense manufacturing firms, which in turn reduces
costs to the DoD and the American public in meeting continued warfighter needs. This can be
accomplished through a variety of short and long-term efforts summarized as follows:
• Strategic Partnering and Communications to achieve long term stability and
predictability – aligning leadership buy-in (top-down) with operational execution
(bottom-up) to better support warfighter needs, business requirements, and budget
cycles.
• Commercialization of defense related technologies and products for more
diversified funding streams – fund DARPA and ManTech programs that support
R&D initiatives to reach commercial value for defense manufacturing firms.
• Acquisition alignment and reform for more predictable funding streams and
requirements alignment – aligning the processes to reduce uncertainty and improve
communication and coordination with defense manufacturing firms to better align
requirements and production.
• Trade Controls, Trade Promotion and Intellectual Property Rights reform to
ease the ability for defense manufacturing firms to export more while protecting
intellectual property.
• Workforce Retention and Linkages between DoD & DIB will assist in increasing
the available talent pool by leveraging the technical training and background of
military member transitioning to the civilian workforce.

20
These steps take advantage of opportunities while addressing weaknesses, and threats
from the SWOT analysis to help foster the stable and predictable environment that follows the
primary theme of this paper. Fortunately, the White House is already investing heavily in
dealing with the long slide of the national defense manufacturing sector, and has developed
significant talent and experience in this subject matter. Industry is already well aware of these
challenges. The opportunity presented from this continued national and public interest should be
capitalized upon to continue to build more predictability and to support a more viable defense
industrial base.
As President Obama articulated in his 2012 State of the Union address, manufacturing
jobs are a critical asset to the country and needs to be treated as such by the government and
public in general. The DIB is even more crucial since its output forms the basis of our country's
ability to defend itself in times of crisis.

21
APPENDIX A: STRATEGIC ALIGNMENT IN THE DEFENSE INDUSTRIAL BASE
Sustainment is the most costly function of the acquisition lifecycle for any weapon
system or platform in the U.S. military arsenal. Although there is significant room for
improvement in the acquisition decision process regarding requirements generation, assessment,
and product delivery, the most important element regarding life management and readiness will
always be sustainment. The complexity and translucency of our current acquisition system does
warrant inter-granular reform due to past challenges (A-12, Boeing, Trident, Joint Strike Fighter,
Joint Direct Attack Munitions, Boeing, etc.) regarding cost overruns, schedule, delivery, ethics,
and prudent management oversight. However, significant gains can be made in sustainment that
meet both near and long term improvement goals if more emphasis was placed on accountability
and performance.
DEPOT ACCOUNTABILITY AND PERFORMANCE
DoD operates 17 major depots employing more than 77 thousand personnel and
expending more than 98 million in direct labor hours annually. By comparison, in 1987 DoD
had 38 major depots that employed almost 160K personnel and performed approximately 200
million direct labor hours of maintenance. This reduction was mainly due to consolidation and
force reductions from Base Realignment and Closure actions. Presently, property, plant, and
equipment of public depots are valued at $48B consisting of 5600 buildings and structures
totaling 166 million square feet.54
Given the role that U.S. defense depots provide for the armed services, several major
concerns have surfaced which may lead to improved performance in the public sector.
Currently, under U.S.C. Title 10 Section 2460 (Depot Maintenance) and 2464 (Core Logistics
Capabilities), our public sector depots are not held accountable for materiel readiness or
reporting to the Under Secretary of Defense Acquisition, Technology, & Logistics (USD
AT&L), and Assistant Secretary of Defense Logistics, & Material Readiness (ASD L&MR).
Both Title 10 sections only refer to workload labor hours regarding core capability accountability
and a very nebulous definition of depot functions concerning maintenance, repair and overhaul.
The current legislation fails to provide a standardized performance metric baseline to which
every depot can be held accountable to cabinet and congressional level principals. A holistic
approach to alignment within the public sector would require a "revision of the statutory
framework of depot maintenance, a linking of acquisition and sustainment policies and outcomes
with regard to depot maintenance, the strengthening of the core determination process, and an
improvement in depot maintenance [and materiel] reporting."55
At present, there is no reporting mechanism or requirement outside of each service's
logistics and defense industry chain for depot material readiness. Public Depots are only
measured by workload standard capability, labor hours and cost performance, which do not
account for material availability and reliability (quality and on schedule removals). Establishing
a standardized performance metric would hold each depot accountable, would highlight
performance trends and provide transparency and visibility for all stakeholders. This initiative
would also bring the power of ASD L&MR and USD AT&L to aid any depot having material,
management, capability, or capacity issues. As an example, the following model could be used:

22
Level (Repair) Schedule Performance: All depots will be held to a performance metric range of
85-95% of their negotiated level schedule per quarter. Depots that perform less than 85% shall
report their shortfalls, deficiencies, causal factors, and course of action recommendations to ASD
L&MR for forwarding to USD AT&L. If three quarters of negative trend are reported, ASD
L&MR will send an evaluation team to the Depot for further investigation. Depots performing
higher than 95% for three quarters or more will provide and share best practice initiatives (if
applicable) for the benefit of the public and private sector community.
Rationale: Currently every area of sustainment is measured by some performance metric that
serves as a baseline requirement for readiness concerns regarding operational availability:
• DLA: 85% Supply material availability goal
• Operational Units: Each platform or weapons system has a readiness baseline based
on utilization, training, funding, and sustainment. The readiness levels are set by
each service based on their mission requirements for both peace and war time
environments.
• OEMs: Measured by a firm fixed price, cost-plus, or a Performance Base Logistics
contract (most ideal) to determine reliability, supply response time, availability, and
engineering/maintenance support.
ROBUST INFORMATION SYSTEM
There is a significant benefit to the development of a product support management
information system that would detail stakeholder information for anyone in the supply chain to
monitor, take action, or review periodically. "Benefits include DoD-wide capacity and
workforce utilization, the integration of management information and reporting systems, and the
minimization of unplanned capability and capacity duplication.”56
This system would also
provide strategic alignment and visibility for all stakeholders within any DoD community and
access would be allowed to all Military/Federal employees with minor exceptions to industry.
Such as system would provide the following information to all users:
• Operational Readiness Metrics: Readiness performance visibility for every platform
by organizational tier (Wing, Group, Squadron, Battalion, Regiment, Division, etc.)
• Total Asset Visibility: Retail, wholesale, industry, and sub-tier value chain
• Workflow Transaction Visibility: Intermediate, depot and industry maintenance
activity
• Level schedule performance and quarterly scheduling: Depot transparency
• Demand and Cancellation Activity: Total visibility of demand, cancellations and
surplus vendor open purchases (DLA buy around) to mitigate stock outs
• Forecasting: Ability to make material forecast based on market share, failure
projections, demand history, or projected operational commitments
• Strategy and Policy Information: List existing, new or recommended logistics and
sustainment strategies for all stakeholders in order to maintain strategic alignment for
public and private sectors
• Budget Information: Include Program, Planning, Budget and Execution, Defense
Working Capital, supplementals, stock replenishment, and other related O&M
funding that's managed and allocated to the operating forces and depots (public sector
visibility only)
• Cost Analysis: Cost per hour, material usage/execution, fuel, contracts, and labor
material cost

23
• Engineering Data: Mean time between failure, forced/unscheduled removals,
engineering investigation results, technical publication updates, and new requirement
initiatives
• Supply Chain Information: Retail and wholesale material availability, logistics
response times, administration lead times, production lead times, stock/allowance
visibility, backorders (high priority and stock), processing times, average ship times
by vendor or distribution depot, stock outs, and non-availability material trends
Impact:
• Transparency and accountability of repair schedule performance to all stakeholders
operating forces, program management, support agencies (i.e. DLA, AAMCOM,
NAVSUP, etc.), engineering, and senior cabinet, congressional and military
leadership
• Building better partnering relationships with supported commands, defense
manufacturing, and industry as a whole
• Prioritizing workload efforts at depots based on communication and performance
visibility
• Better management and allocation of resources (efficiency) based on actual demand
notification vice reactive schedule fluctuations due to emerging requirements
• Identifying best practices and incorporating new procedures or processes based on
proof of concept, analysis and documented research
The information system would have 5 Tiers that incorporate all levels of policy, strategy,
accountability, planning, budget, performance, readiness, and sustainment. The following chart
demonstrates a basic concept of how this robust system would function in creating strategic
alignment throughout the DIB.
Figure 1: Information Systems Flow Structure

24
Key stakeholders must be involved throughout the DIB chain and each
member/organization/agency must demonstrate a clear understanding of their roles and
responsibilities regarding policy, planning, budget, execution, management, accountability, and
reporting requirements. Table 3 provides an overview of the current system with recommended
changes to support the new Product Support Management Information System construct; major
changes are highlighted in red.
Table 3: Stakeholder Hierarchy
Policy Players Involved Action Emphasis
Congress: Depot Caucus (House) and
Senate Depot Interest (no formal
caucus)
Provides central policy guidance on sourcing
depot maintenance for all systems taken
together - e.g., 50/50 rule, Core depot
maintenance, Core capability, and Public
Private Partnership requirement will be
reviewed annually to ensure max efficiency
and productivity gains are realized. Waivers
under 50/50 demarcation will be granted
based on supportability, feasibility,
affordability, and sustainability.
Resource preservation, Job
Retention, Economy of Scale,
effectiveness, long term
viability and productivity
High level DOD policy makers:
SECDEF, DEPSECDEF,USD
(AT&L), ASD Logistics and Material
Readiness (L&MR), DASD
Maintenance Policy, Programs (MPP).
JCS, Vice Chairman and Service
Chiefs.
Provide central policy guidance on sourcing
depot maintenance for specific systems (e.g.,
rules of competition, relevance of “Core
capability,” implications of depot
maintenance provision policy for addressing
individual systems) . Establishing,
monitoring, and enforcing, accountability for
standardized performance goals where
applicable.
Compliance; Efficiency
assessment through
reporting, business case
analysis, and policy guidance
Military Services: Service Secretaries,
Army Material Command, Air Force
Material Command, Marine Corps
Logistics Command, Chief of Naval
Operations, Naval Sea and Air
Systems Command.
Define concepts in central policy guidance
(e.g., define “Core capability”)
Control, Compliance,
Responsiveness
Logistics and Acquisition Commands
within the Military Services; Private
and Public-Sector Maintenance
Activities
Managing expectations and actual
performance parameters including cost,
quality, and response time for maintenance
provision of individual weapon systems.
Ensuring visibility and tracking of sub-tier
value chains to sustain materiel readiness and
identify critical small and medium suppliers
of defense weapon system components and
end items.
Private Sector - Efficiency,
cost. Public Sector -
competency, job/skill
retention. Linkage between
shareholder profits to
Materiel and Operational
readiness sustainment
Acquisition Commands within the
Military Services
Use analysis and competition to select sources
for individual systems
Planning
Logistics Commands within the
Military Services and Military
Operating Commands
Use analysis or competition to allocate depot
maintenance workload among existing
sources for individual fielded systems
Mission Support
Office of the Secretary of Defense;
Military Service Logistics Commands;
Military Operating Commands
Set resource levels for actual depot
maintenance activities: investment dollars,
operating dollars, billets, training, etc.
Resourcing
VALUE CHAIN TRACKING AND VISIBILITY

25
Material and product providers have a difficult time of tracking inputs throughout the
value chain. During periods of economic downturn or defense budget reductions, many mid to
low sub-tier suppliers are affected because there is no formal linkage between the OEM and all
its suppliers. Ultimately, this causes significant concern when a small company is the sole
producer of an input for a weapons system and represents a single point of failure in the supply
chain if the company cannot remain solvent due to budget reductions. Confirmation of this fact
was reinforced when Mr. Brett B. Lambert (DASD, Manufacturing and Industrial Base Policy)
stated that “some products and services sold by companies in the defense industrial base are
unique to defense applications, while most have substantial levels of non-defense demand or are
even sold exclusively on commercial terms such that the supplier may not even know that the
product is used in military systems; and likewise, the military may not know it depends upon a
primarily commercial component.”57
Inputs (raw materials) from suppliers are critical to output, production, and
manufacturing, which lead to availability, and operational effectiveness and readiness.
Unfortunately, there is no legislative mandate that requires every defense contractor to identify
and track suppliers within their sub-tier value chain. Having a uniform “top down” policy that
forces each contractor to maintain visibility of all sub-tier suppliers would identify potential
disruptions and critical sole source supply chain vulnerabilities. Additionally, this effort would
act in concert with Sector-by-Sector, Tier-by-Tier data collection and analysis for determining
immediate failure points within the existing value chains.
INCENTIVIZE VERTICAL SUPPLY CHAIN INTEGRATION FOR RARE EARTH
ELEMENTS
Tracking and having total visibility of the supply chain will prove advantageous
regarding long-term material availability and readiness. However, in order to avoid price
volatility, inelasticity, and sensitivity from suppliers of raw materials, the government should
establish incentives for companies that invest in backwards and upstream integration for key
inputs that are mined, extracted (separated, refined, formed, manufactured) and owned by
overseas companies. Dependency on any input that is identified as a strategic material by DLA’s
Strategic Materials Branch increases U.S. vulnerability regarding shortages of imported raw
materials during wartime conflict.58
There are 17 Rare Earth Elements (REEs) that are extracted
from the earth’s crust and they fall under two categories divided by atomic weight: Light REEs
and Heavy REEs. Many of our commercial and defense systems (end use items) require REEs
because of their high strength to weight ratio, quality, stiffness, and resistance to heat and
corrosion. Examples are provided in Table 4.
Table 4: Rare Earth Element System Inputs
Commercial Defense
Hybrid cars Precision guided munitions
Wind power turbines Lasers
Computer hard drives (Micron – DRAM, Flash) Communication systems
Cell phones Radar systems
Portable X-Ray units Avionics
Fiber optics Night vision equipment
Energy efficient light bulbs. Satellites

26
There are limited or no substitutes for REEs and currently China produces 97% of the
world’s demand and possesses 55% of the world’s reserves (55 million metric tons).59
“The
value of U.S. rare earth imports from China rose from $42 million in 2005 to $129 million in
2010, an increase of 207.1%. However, the quantity of rare earth imports from China fell from a
high of 24,239 metric tons in 2006 to 13,907 metric tons in 2010, a 42.6% decline [due to export
quotas. The United States was once self-reliant in domestically produced REEs, but over the
past 15 years has become 100% reliant on imports because of low cost operations.”60
There is
new legislation being introduced to the 112th
Congress to address our dependency and the
monopoly of critical REEs from China (see Table 5)61
.
Table 5: REE Existing Legislation Recommendations
Statute Goal Responsible
Office/Agency
H.R. 1388, the Rare Earths Supply Chain
Technology and Resources
Transformation Act of 2011
Seeks to reestablish a competitive domestic
rare earths supply chain within DOD’s Defense
Logistics Agency .
Defense Logistics
Agency
H.R. 1540, the National Defense
Authorization Act for FY2012
Develops an inventory for rare earths materials
to support defense requirements,
Defense Logistics
Agency
S. 383, the Critical Minerals and
Materials Promotion Act of 2011
Establishes a scientific research and analysis
program to assess current and future critical
mineral and materials supply chains, strengthen
the domestic critical minerals and materials
supply chain for clean energy technologies,
strengthen education and training in mineral
and material science and engineering for
critical minerals and materials production, and
establish a domestic policy to promote an
adequate and stable supply of critical minerals
and materials necessary to maintain national
security, economic well-being, and industrial
production with appropriate attention to a long-
term balance between resource production,
energy use, a healthy environment, natural
resources conservation, and social needs.
Secretary of the
Interior
H.R. 618, the Rare Earths and Critical
Materials Revitalization Act of 2011
Provides for loan guarantees to revitalize
domestic production of rare earths inthe United
States.

27
Statute Goal Responsible
Office/Agency
S. 1113, the Critical Minerals Policy Act
of 2011
defines critical minerals. Would require a
performance metric for permitting mineral
development and report on the timeline of each
phase of the process. Would provide forecasts
of domestic supply, demand, and price for up to
tenyears.
Secretary of the
Interior establish a
methodology (in
consultation with
the National
Academy of
Sciences, the
National Academy
of Engineering and
various Department
Secretaries)
H.R. 2011, the National Strategic and
Critical Minerals Policy Act of 2011
Prepares a report on public lands that have been
withdrawn or are otherwise unavailable for
mineral exploration and development, mineral
requirements of the United States, the nation’s
import reliance on those minerals, a timeline
for permitting mineral-related activities on
public lands, and the impacts of litigation on
issuing mineral permits
Secretary of the
Interior
H.R. 2090, the Energy Critical Elements
Advancement Act of 2011
Improves assessments of “energy critical
elements throughout the supply chain, supply,
demand, disposal and recycling.”
Secretary of the
Interior and the
Secretary of Energy
H.R. 2184, the Rare Earth Policy Task
Force and Materials Act
Prepares a Materials Program Plan of R&D that
would support and help ensure long-term
viability of a domestic rare earth industry.
Encourage expanding opportunities for higher
education to support the build-out of the rare
earth supply chain.
Department of
Energy,
Commerce, State,
Defense,
Agriculture, Offic
of Management and
Budget, Council of
Environmental
Quality.
The United States should take the same approach to incentivize (tax cuts, subsidies,
import restrictions/quotas) any firm that is willing to make the capital investment in mining raw
materials or acquiring (i.e. consolidation, mergers and acquisition (CM&A)) overseas companies
that already possess the capital resources (equipment, mining rights, knowledge, environmental
certification) in order to make an immediate impact in the global market and reduce dependency.
CM&A also avoids the 10-15 year average delay (return on investment) due to the high capital
outlays and long-term process of mining, extracting, gaining permits, and complying with
Federal or State/local environmental regulations. Eliminating dependency of critical raw
material inputs from foreign suppliers will lower cost, reduce supplier power, improve supply
chain controls, and provide better visibility or material distribution and inventory.
The United States would also need to make amendments to the General Mining Act of
1872, which states that mining can only establish claims on public land. The following is noted
in the 2011 Strategic Materials Industry Report:

28
Today, roughly one third of the United States is public land, but half of those
public lands are closed to mining and resource explorations. While the 139-year-
old policy regime does not deter mining investment per se, it also does not
incentivize exploration and development, nor does it capitalize on opportunities for
the government to capture revenues accrued from the extraction of what is
arguably a common resource to the public.62
Congress must amend this legislation to expand mining exploration, and include language that
allows companies to pursue mining operations on private lands if all environmental, safety, and
reclamation standards are met.
To achieve long-term viability during periods of economic downturn, budgets reductions,
or post war drawdowns, both public and private sectors can benefit from immediate policy
changes. From the public sector, our depots should be held accountable for their repair schedule
and quality performance by adhering to baseline/standardized performance metrics for MRO and
Material Conditioning (Recapitalization, Reset, Reconstitution) requirements from USD AT&L.
Other areas of product support sustainment for both supported and supporting commands are
held accountable through performance goals that are tracked and monitored throughout DoD.
This reporting requirement would be an easy transition for the defense depots and would allow
USD AT&L and ASD L&MR to oversee the material readiness performance of the public sector.
The resulting effects will lead to transparency, better collaboration, visibility, immediate action
of negative trends, and recognition of lasting efficiencies gained from partnering, lateral support,
best practice implementation, and real time prioritization. The implementation of a
comprehensive product support management information system will also lead to improved
material readiness, strategic alignment, transparent information flow, time management
efficiency, and better root cause analysis. New legislation could mandate that all defense
contractors and agencies track and maintain visibility of their mid-low sub-tier suppliers to gain
total visibility of their value chain and identify single failure points or potential supply
disruptions for critical inputs. Although the depot accountability initiative can be implemented
immediately without additional funding, the long-term effects regarding improved sustainment
will come from the development of a robust supply chain/product support information system.

29
APPENDIX B: TITLE 10 UNITED STATES CODE
While there is no formal strategy that impacts entities within the DIB, the sector is
subject to positive and negative government influences. The government can provide incentives,
subsidies and stimulus, but can also be restrictive with rules and regulations. Key congressional
oversight of defense depot-level maintenance and repair activities is codified in Title 10, United
States Code (Sections 2460, 2461, 2464, 2466, and 2474). A summary of each is provided
below:
• Section 2460 – defines depot-level maintenance and repair as “material maintenance
or repair requiring the overhaul, upgrading, or rebuilding of parts, assemblies, or
subassemblies, and the testing and reclamation of equipment…” The definition
applies regardless of source of funds or location of maintenance, and explicitly
includes all software maintenance as well as interim contractor or contractor logistics
support.
• Section 2461 – defines public private competition whereby no function of DoD
performed by DoD employees may be converted to performance by a contractor
unless the conversion is based on the results of a public private partnership. The
results must compare cost of performance, include a most efficient organization plan,
include issuance of solicitation, assess cost, reliability, quality, availability, and
timeliness and compare cost of performance between government and contractor
personnel.
• Section 2464 – codifies the necessity of Government-owned and Government-
operated (GOGO) depot-level maintenance and repair requirements. These core
requirements are “essential for the national defense … to ensure a ready and
controlled source of technical competence and resources necessary to ensure effective
and timely response to a mobilization, national defense contingency situations, and
other emergency requirements”. Program Managers must identify these core
requirements within four years of initial operational capability.
• Section 2466 – requires that at least 50 percent of depot-level maintenance funds
made available to a military department/defense agency be used for the performance
of such work by employees of the DoD. In addition, the government cannot contract
out more than 50 percent of funds to the private sector. The Secretary of Defense is
required to submit a report to Congress identifying the percentage of public and
private workload by service and defense agency.
• Section 2474 – designation of military arsenals as Center of Industrial and Technical
Excellence to reengineer industrial processes and adopt best business practices in
connection with core competency requirements in order to lead and preserve the
national technology and industrial base. Where applicable public private partnerships
will be encouraged to maximize utilization, reduce cost of ownership and products,
leverage private sector investment, and foster partnerships with DoD.
Acquisition and sustainment processes have matured in a resource-constrained
environment, which has created challenges for DoD. Within these laws, a general framework is
provided for services to make key acquisition, sustainment planning, and resource allocation
decisions to meet operational objectives and characterize core capabilities. These laws however
are subject to interpretation and are applied inconsistently. GAO has stated that clear guidance

30
must be established early in the acquisition process for any weapon system. Subsequently,
program managers must identify a plan for core capability to address acquisition strategies for
core requirements or program offices will not procure technical data to execute core capability.63
Overall, the intent of the laws to sustain Government-Owned, Government-Operated
(GOGO) core capabilities is sound. As Michael O’Hanlon noted, “Capabilities could be lost,
and once lost, could be difficult, costly, and slow to replace if and when they are needed
again.”64
Specifically, Section 2464 enhances readiness by requiring a surge capacity,
maintaining technical skills and abilities over the long term, and ensuring an enduring physical
infrastructure. Ambiguity in the law enhances readiness by allowing the services flexibility on
matters like location of repair and overhaul (Section 2460), ability to shift the 50/50 burden
between weapons systems (Section 2466) and enlisting cost efficient best practices to support
readiness requirements (Section 2461 and 2474).
There are however, significant seams between these laws, most notably between Sections
2464 and 2466. The 50/50 law should reinforce the core requirement, but the law is not linked to
core capabilities in the statute. Since the 50/50 law is the only one requiring a report to
Congress, the core capabilities accomplished in the depots are not easily found. The current
wars have strained the services equipment allowing DoD to keep depots busy. As drawdown
occurs and reconstitution is complete, the unused capacity will reduce the public side of the
50/50 ledger.65
Additionally, newer acquisition programs incorporate depot-level maintenance
as part of the contractor logistics support package under Performance Based Logistics (PBL)
initiatives. This forces the services to become more reliant on legacy workload to balance
meeting 50/50 requirements. Furthermore, as Avdellas noted, “Acquisition program managers
are reluctant to make longer-term investments in depot maintenance capabilities, which need to
be done early in a system’s life cycle in order to be effective because they have more immediate
program needs.”66
The Air Force faces challenges in meeting 50/50 and barely met legal
standard in 2010 with a GOGO rate of 50.1%.67
Ultimately, given the pressure to move to
competitive sourcing, the seams create a legal loophole that unfortunately incentivizes the
services toward a “mismatch of work selected to comply with 50/50 reporting, versus work that
exercises core capabilities”.68
Public-private partnerships (PPPs) have also come under increased scrutiny due to budget
reductions and government inclinations to push for increased in sourcing of industrial base
capabilities. However, evidence demonstrates that these relationships maintain and improve
critical core capabilities. Commonly defined, “Public-private partnerships for depot-level
maintenance are cooperative arrangements between a depot-level maintenance activity and one
or more private sector entities to perform DoD or defense-related work, to utilize DOD depot
facilities and equipment, or both.”69
This definition can be broadened from maintenance
activities to include sustainment activities, ammunition facilities, munitions centers, and
manufacturing arsenals.70
Furthermore, the types of partnerships “are diverse and flexible
including: workshare, teaming, sales of parts and services, facility and equipment leasing,
Centers for Industrial and Technological Excellence partnering, Armament Retooling and
Manufacturing Support Programs (ARMS), Arsenal Support Program Initiatives (ASPI), and
Cooperative Research and Development Agreements.”71
These partnerships illustrate potential

31
win-win situations for the depots, the warfighter, and commercial firms that provide measurable
and realistic benefits.
In 1998 in order to facilitate partnerships, Congress added Section 2474 to 10 USC,
which provided a statutory basis to establish partnerships. This also allowed depots to be
designated as Centers for Industrial and Technological Excellence (CITEs) in their core
competencies and allowed them to form public-private partnerships in these core competencies.72
A few years later, section 342 of the 2002 National Defense Authorization Act amended Section
2466 to 10 USC to exclude public-private partnerships performing at CITEs from the 50/50
limitation.73
This evolution reflects an environment that is increasingly constrained by current
costs that are crowding out spending on modernization.
A common theme in the literature on PPPs is the importance of conducting a thorough
business case analysis (BCA). More fundamental to the discussion is some degree of consensus
on what is inherently governmental work that must be preserved as a core capability, because
existing laws provide incentives for services to enter PPPs in order to report 50/50 law
compliance instead of a value-based decision. “Government has the responsibility of oversight.
Government has the responsibility of management- they have to work with industry to do that in
order to get the best results”.74
Therefore, while it is true that DoD needs to enforce standardized
BCAs with established baselines, performance requirements (readiness), true equivalent costs
and metrics; BCAs are but one decision tool to aid determination of a sound PPP arrangement—
the absence of which does not necessarily negate the value of the partnership. The culprit is the
50/50 law itself, which drives short term decisions to meet reporting requirements, yet is
exempted at CITE locations in order to overcome its congressionally imposed constraints for
apparently good reason. The need and acceptance of such exemptions are further evidence of the
law’s arbitrary and archaic nature. The law is a valid reminder, however, that there will always
be barriers to best value decisions due to congressional interest.
Additionally, standardization across DOD is required for reporting between services and
private companies in order to measure progress. Furthermore, it is not inherently apparent that
depots can be incentivized since they do not operate for profit. But, there is motivation to remain
competitive and retain workload.75
This problem is further aggravated by contracting practices
that do not drive towards investing in long-term relationships through contracts that are five
years or longer. While DoD has a difficult time defining and measuring core capabilities, it also
has a hard time describing how PPPs expand core capabilities.76
According to DoD’s Weapon System Acquisition Reform Report, public-private
partnerships resulted in improved product support, performance, and business practices; updated
technology and cost avoidance; and increased facility utilization.77
As Jacques Gansler noted,
public-private competition improves cost and performance. He stated, “The government is not
cheaper…whenever we’ve had competitive sourcing, we get more than 30 percent cost savings,
on average, with higher performance, no matter who wins – and the government most often
wins.”78
Additional reasons for forming a public private partnership for the depot include
reduced cost of ownership and preserving skilled workforce. Contractors gain long-term
contracts, increase profits, and leverage depot capabilities, equipment and facilities.79
Ultimately, partnerships allow for cross-fertilization of best practices between industry and

32
government, which result in sustained readiness improvement. Most of the evidence still favors
an increase in PPPs, not a retreat from them.
Like all ventures, there are ways to improve, or at least assure the success of PPPs. PPPs
have to be developed with strategic alliances in mind. The integration of goals and objectives of
all partners with a long-term strategy is critical.80
Key to maintaining mutually beneficial
relationships is full and open communication, long-term commitment, continuous improvement,
and close collaboration based on trust.81
Transparency through comprehensive and consistent
business case analysis is needed to support best value determination of life cycle product support
decisions. The Navy has found that its success with PPPs and the Naval Aviation Enterprise
construct is due to bringing all stakeholders to the table and managing holistically; long-term
contracts allow them to reap the benefits of the partnership; and they recognize the private
sector’s need for profit provides incentives for improvements in performance.82
RECOMMENDATIONS
1. Revise and improve service-reporting requirements in favor of a DoD wide measure of
performance to provide accountability and establish a baseline of excellence for public an
private sector.
2. Eliminate arbitrary 50/50 demarcation that provides a more flexible interpretation of true
core requirements.
3. In-sourcing decisions need to take into consideration the health of the private sector as well
as the public sector.
4. Identify core requirements and capabilities early in the acquisition process and link with
source of repair analysis; continue to encourage cost saving best practices and readiness
performance through PPPs and PBL initiatives.
5. Institute PPP strategy as part of the acquisition milestones.
6. Retain and recoup cost savings in the defense budget to improve modernization and revisit
exclusion concerning modification in Section 2460.
7. DOD needs to establish overarching goals and measures to collectively assess PPPs.
8. Implement the DOD Product Support Business Case Analysis Guidebook as policy.
9. Ensure all stakeholders are involved and there’s transparency, visibility, collaboration, and
cross functional team participation from senior leadership (Industry ((CEOs, VPs) and DoD
(Flag Officers)), Depots, OEMs, DLA, Service Logistics Commands/Agencies, Program
Office, Foreign Military Sales, and policy makers (USD AT&L, ASD L&MR).

33
APPENDIX C: SUPPORTING DEFENSE ADVANCED MANUFACTURING
There are numerous initiatives underway nationally to strengthen, stabilize and sustain
the manufacturing base within the United States. These efforts include State and Federal
programs, initiatives, and legislation designed to support and sustain the manufacturing base
within the United States. This section focuses on the efforts under way that impact the defense
industrial base. These efforts are aligned to the NIST Advanced Manufacturing Partnership
objectives (as detailed in the National Strategic Plan for Advanced Manufacturing) to
demonstrate any gaps or overlaps in initiatives. Subsequently, these gaps and initiatives help to
prioritize where resources should be focused for sustaining the defense industrial base.
Table 6: Manufacturing Programs aligned to Advanced Manufacturing Strategy Objectives
NATIONAL STRATEGIC
PLAN FOR ADVANCE
MANUFACTURING
OBJECTIVES: FEB 2012
Obj. 1:
Accelerate
Investment
through
Federal
capabilities
and facilities
(early
procurement)
Obj. 2: Expand
# of workers
with skills in
advanced
manufacturing
sector (more
responsive
education and
training system)
Obj. 3: Create
National and
Regional public-
private,
government-
industry-academic
partnerships to
accelerate
investment
Obj. 4:
Optimize the
Federal
government’s
investment
through
portfolio
perspective
across agencies
Obj. 5:
Increase
total U.S.
public and
private
investment
in R&D
NATIONAL EFFORTS THAT IMPACT MANUFACTURING
DOC NIST Manufacturing
Extension Partnership (MEP)
X X X
DOC NIST Engineering
Laboratory
X X X
DOE Advance
Manufacturing Office
X X X X
DOE Advanced
Manufacturing
Office of Science and
Technology Policy (OSTP),
Advance Manufacturing
Partnership
X X X X X
Manufacturing Institute (not
government funded)
X
NSF Directorate for
Engineering
X X X X
NIST Advanced
Manufacturing Technology
Consortia (AMTECH)
FY2013 NATIONALLY PROPOSED PROGRAM
National Network for
Manufacturing Innovation
(NNMI)
FY2013 NATIONALLY PROPOSED PROGRAM
DEFENSE RELATED EFFORTS
DOD Manufacturing
Technology (ManTech)
Program
X X X
DOD Laboratory Enterprise X X X

34
NATIONAL STRATEGIC
PLAN FOR ADVANCE
MANUFACTURING
OBJECTIVES: FEB 2012
Obj. 1:
Accelerate
Investment
through
Federal
capabilities
and facilities
(early
procurement)
Obj. 2: Expand
# of workers
with skills in
advanced
manufacturing
sector (more
responsive
education and
training system)
Obj. 3: Create
National and
Regional public-
private,
government-
industry-academic
partnerships to
accelerate
investment
Obj. 4:
Optimize the
Federal
government’s
investment
through
portfolio
perspective
across agencies
Obj. 5:
Increase
total U.S.
public and
private
investment
in R&D
Defense Advance Research
Projects Agency (DARPA)
X X
Defense Production Act Title
III
X X
NCDMM (not government
funded)
X X
Gaps/Challenges
As evidenced from Table 6, there are numerous programs designed to strengthen and
enable the manufacturing base. However, there are clear gaps in DoD efforts to develop skills in
advanced manufacturing and to reap the benefits of economies of scale and scope through a
federal government portfolio approach to investment. From a funding and innovation
perspective, DoD remains one of the largest R&D sources in the United States. However, the
current budget proposals have disproportionate cuts to defense-related R&D which will
negatively impact the level of innovation in the defense manufacturing base.
Proposed Initiatives to Address Gaps in Efforts for Advanced Manufacturing
The National Defense Industrial Association (NDIA), National Association of
Manufacturers (NAM), and Coalition for Prosperous America (CPA) organizations, as well as
many other interested parties, provide numerous recommendations for improving manufacturing
in the United States.
National Defense Industrial Association (NDIA). NDIA is a partnership between
government and industry that facilitates growth, innovation and technological advances
in the defense industrial base.83
General Policy Efforts Relevant to Manufacturing
include:
• Align Defense Industry Investment and Capacity with National Security
Requirements, Priorities and Budgets
• Pursue Efficiencies While Maintaining the Industrial Base to Ensure Military
Readiness
• Enable International Competitiveness of U.S. Industrial Base
• Increase Awareness, Opportunity and Utilization of Small and Mid-Tier Businesses
in Government Contracts.84
National Association of Manufacturers (NAM). NAM is a manufacturer and industrial
trade organization that advocates for a policy agenda that helps manufacturers create
jobs85
. General Policy Efforts Relevant to Manufacturing include:
• The United States must create a dynamic environment that supports jobs and
economic growth

35
• The United States must adopt policies that enhance access to new markets and
support existing ones
• The United States must develop a skilled workforce that includes the best talent from
inside and outside the country
• The United States must adopt policies that adopt and retain research and development
activities and promote and protect manufacturers’ intellectual property86
.
Coalition for Prosperous America (CPA). CPA is a non-profit organization focused on
reforming trade policy and represents 2.7 million households comprised of agriculture,
manufacturing and labor members. One of the group’s leading intellectuals, Ian Fletcher,
believes that a true level playing field in global trade is impossible, and no free-market
solution will ever balance trade. In lieu, balanced trade will have to be some kind of
managed trade, he concludes.87
This organization places greater emphasis on:
• Achieving reciprocity in U.S. trade negotiations
• Extending benefits in preferential trade agreements such as the Trans-Pacific
Partnership (TPP) to private companies88
• Engaging, educating and informing citizens and local opinion leaders on
manufacturing and agricultural issues
• Raising awareness with congress on the small to medium sized enterprises.
This section outlines those proposals that impact the critical areas of expanding
workforce skills in advanced manufacturing, developing a federal or agency-wide portfolio
approach to R&D investment and targeting key initiatives for allocating R&D funding.
Expanding Workforce Skills
Developing workforce skills remains critical to furthering advanced manufacturing due to
the growing gap between the desire for qualified employees and the available pool of skilled
employees. NAM has made several recommendations to expand the available number of skilled
employees in the United States. NAM’s specific goal is that, “Manufacturers in the United
States will have the workforce that the 21st
-century economy requires.”89
NAM highlights
several initiatives that will help achieve this goal.
• Develop a more productive workforce and encourage innovation through education
reforms and improvements. NAM recommends that the NAM-endorsed system of
Manufacturing Skills Certifications be promoted throughout the industry. The
Manufacturing Institute is currently leading this effort.90
• Attract the best and brightest to the United States. NAM believes that a significant
number of skilled employees can work in the United States if the immigration
controls are eased and administratively simplified.91
NDIA also supports these efforts stating that, “the Manufacturing Skills Certification
Skills System…is the first step in bringing sorely needed jobs back on-shore, and strengthening
our manufacturing base.”92
Additionally they believe that the government needs to take action to
improve the image of manufacturing to attract more workers into this field. The manufacturing
industry competes for talent with the same group of individuals that are being drawn into high-
tech careers. Increasing the number of STEM graduates will require a coordinated effort
between government, communities and the private sector.93

36
Optimizing Investments by Implementing Agency-wide Portfolio Approach
Continuing to develop and define a portfolio approach to address advanced
manufacturing would significantly benefit the DoD, Department of Commerce and Department
of Energy. By identifying programs and initiatives to build synergies between agencies, the
agencies may be able to optimize federal investment in advanced manufacturing as well as
indirectly fostering R&D and building more skills in manufacturing. One initiative being
proposed is the establishment of a National Network for Manufacturing Innovation (NNMI).
The President’s FY 2013 budget proposes $1B in funding to establish the NNMI. This one time
investment requires congressional approval and legislation. Current efforts are under way to
facilitate discussions between the government, industry and academia on the focus of NNMI.
In addition to establishing multi-agency efforts, there continues to be a need for federal
government and private sector coordination in advanced manufacturing. Initiatives focused on
federal government and private sector coordination also encourage and optimize investment
across agencies. To that end, the OSTP Advanced Manufacturing Partnership and the NIST
AMTech program will provide value to the government and the defense manufacturing base.
The AMTech program will “support high-value-added, knowledge intensive U.S. made products
that respond to new market opportunities and generate high-skilled manufacturing jobs; discover
cost-effective methods for making new products that safely exploit nanoscale materials; and
develop new types of manufacturing tools and processes that allow cost-effective small batch
production and create new market opportunities for small and mid-sized manufacturers94
.” The
President’s FY 2013 budget request is $21M to fund the start-up of the AMTech program.
Targeting key initiatives for R&D funding
The United States’ ability to innovate has been critical to its past success in
manufacturing. Government backed research and development has been a key component to
innovation. Attempting to continue R&D while reducing the total federal budget provides
significant challenges. The FY2013 budget request illustrates the level of reductions in R&D
being done by the government, particularly within the DoD. NAM and NDIA both recognize the
importance of government R&D and have recommendations to increase government funding.
Additionally, both organizations have recommendations to incentivize private R&D as well as
funding programs that have historically been the most successful.
NAM has established a goal that “Manufacturers in the United States will be the world’s
leading innovators.”95
The key components of this are R&D incentives and protection of
intellectual property. NAM’s specific recommendations include:
• Strengthen and make permanent the R&D tax credit. NAM recommends increasing
the R&D credit to 20 percent and making it part of the permanent tax code.
• Support federal research agencies and public- and private-sector research
• Recognize IP as the basis of America’s innovative economy96
Of note, the Milken Institute also agrees with NAM but recommends a permanent 25
percent R&D tax credit to encourage businesses to increase their investment in product
development, which would lead to the following micro and macro economic benefits:
• Creating new products and services

37
• Enhancing productivity growth
• Expanding investment in technology-intensive capital equipment
• Spurring greater exports, production, employment, and incomes
• Boosting Real GDP growth97
If the United States were to expand the R&D tax credit to 25 percent, the following results could
be realized through 2019:
• After 10 years [From 2010 estimates], real GDP is $206.3B, or 1.2 percent, above the
baseline projection in 2019
• Real business fixed investment rises 5.6 percent, or $124.6B, above the baseline
scenario in 2019
• Exports, especially technology-related goods and services, experience higher growth.
By 2019, real exports stand at $63B (2.1 percent) above the baseline projection
• Industrial production exceeds the baseline scenario by 4.4 percent in 2019. Total
employment rises by 510,000 jobs (0.4 percent) above the baseline at its peak in
2017, and manufacturing employment jumps by 270,000 jobs (2.1 percent) above the
baseline in 201998
R&D initiatives can be costly to firms in terms of risk and potential benefit. A
permanent R&D tax credit would reduce the risks or uncertainty associated with R&D and
delayed return on investment while taking full advantage of the long term positive externalities
associated with creativity, innovation, and both product and process development efficiencies.
NDIA’s recommendations follow a similar theme. NDIA also discusses the value of
clustering for R&D and provides recommendations on funding for the DoD ManTech program.
NDIA provides the following recommendations on R&D:
• Government policy should support the formation and management of clusters by
offering a centralized process for creating and developing the clusters. Additionally a
model for collaboration between clusters needs to be provided. Research Triangle
North Carolina and Silicon Valley provide good examples of clustering and
collaboration.
• The DoD ManTech program is underfunded. According to a 2006 Defense Science
Board study, funding for ManTech should be approximately 1% of the defense R&D
budget. Funding for ManTech should be about $700M but is currently being funded
at approximately $200M. Historically, this program has saved the government
billions of dollars in savings and cost avoidance. In these times of reduced budgets,
additional spending towards ManTech could be significantly beneficial.99
Conclusion and Prioritization
In this time of declining defense budgets and fiscal constraints, and based on the high
priority being placed on advancing manufacturing efforts in the U.S, it is clear there are priorities
on which defense resources could be applied to support defense advanced manufacturing.
Specifically by further funding the DoD ManTech program based on potential commercialization
of products for defense advanced manufacturing needs, defense manufacturing firms would gain
further revenue streams and generate economies of scale. Additionally, by funding programs
such as NNMI to develop portfolio approaches to advanced manufacturing focusing on programs

38
with a longer time horizon, the DoD and the Administration will take on initiatives that might
otherwise be over looked by private industry – given its shorter time to market. Therefore in
order to maintain workforce skills, continue to be innovative, and maintain a stable and
predictable environment where defense manufacturing firms remain viable, it should be the
priority of DoD and the Administration to focus R&D efforts on those items which have the
potential in the future for commercial needs, as well as focus on R&D or advanced
manufacturing programs which may yield benefits in the 10 year time frame verses the
immediate.
Appendix C – 1: Program Descriptions Definitions
Department of Commerce (DoC) NIST Manufacturing Extension Partnership (MEP). MEP is a
Public/Private partnership that helps small and medium sized companies create/retain jobs and
increase profits. MEP pairs businesses with government lab innovation and process solutions to
increase their performance. For every $1 of federal funds spent there is approximately $30 in
new sales growth, accounting for approximately $3.6B in new sales annually.100
DoC NIST Engineering Laboratory (EL). The EL promotes U.S. innovation and industrial
competitiveness through anticipating and meeting the measurement science and standards for
technologically intensive manufacturing.101
Department of Energy (DoE) Advanced Manufacturing Office (AMO). The AMO is a
government program designed to develop and deploy new energy-efficient technologies for
manufacturing.102
The DoE estimates that AMO has saved approximately 3300 manufacturing
plants a total of $1.6B per year in energy savings.103
Office of Science and Technology Policy (OSTP) Advanced Manufacturing Partnership (AMP) .
The Advanced Manufacturing Partnership (AMP) is a national effort bringing together the
Federal government, industry, universities, and other stakeholders to identify and invest in
emerging technologies with the potential to create high-quality domestic manufacturing jobs and
enhance the global competitiveness of the United States.104
Manufacturing Institute. The Manufacturing Institute is a Washington, DC-based organization
dedicated to improving and expanding manufacturing in the United States. They are affiliated
with the National Association of Manufacturers and can best be described as part think tank, part
solutions center.105
NSF Directorate for Engineering. The National Science Foundation promotes the progress of
engineering in the United States in order to enable the Nation's capacity to perform. Its
investments in engineering research and education aim to build and strengthen a national
capacity for innovation.106
NIST Advanced Manufacturing Technology Consortia (AMTech). AMTech will establish
industry-led consortia to identify and prioritize research projects supporting long-term industrial
research needs. AMTech creates the incentive for manufacturers to share financial and scientific
resources with universities, state and local governments and non-profits107
.

39
National Network for Manufacturing Innovation (NNMI). NNMI is a proposed program for FY
2013. This program is designed to be a multi-agency collaborative effort among the Department
of Commerce (NIST), the Department of Defense, the Department of Energy and the National
Science Foundation. NNMI will build a network of up to fifteen Institutes for Manufacturing
Innovation around the country, serving as regional hubs of manufacturing excellence that will
help to make manufacturers more competitive and encourage investment in the United States.
The President’s Budget proposes a $1B investment over the next 10 years to create NNMI108
.
DOD Manufacturing Technology (ManTech) Program. The ManTech Program develops
technologies and processes for the affordable, timely production and sustainment of defense
systems. The program impacts all phases of acquisition. It aids in achieving reduced acquisition
and total ownership costs by developing, maturing, and transitioning key manufacturing
technologies. Investments are focused on those that have the most benefit to the Warfighter and
include quick-hitting, rapid response projects to address immediate manufacturing needs.109
DOD Laboratory Enterprise. The DoD Laboratories ensure continued U.S. military dominance
against current and future threats through a continuous, vigorous and innovative Defense
Research Enterprise. In an era of declining budgets and resource constraints, however, managing
this effort requires concerted effort by the Director, Defense Research and Engineering
ASD(R&E) to optimally balance effectiveness and efficiency in the pursuit of meeting the
National priorities as defined by Departmental guidance.110
Defense Advanced Research Projects Agency (DARPA). DARPA’s mission is to maintain the
technological superiority of the U.S. military and prevent technological surprise from harming
our national security by sponsoring revolutionary, high-payoff research bridging the gap between
fundamental discoveries and their military use.111
Defense Production Act Title III Authorities. Title III provides a set of unique economic
authorities to incentivize the creation, expansion or preservation of domestic manufacturing
capabilities for technologies, components and materials needed to meet national defense
requirements.112
National Center for Defense Manufacturing and Machining (NCDMM). NCDMM is an
organization that helps accelerate manufacturing solutions in small and medium sized
manufacturing firms within the defense industrial base. Through cost avoidance, NCDMM has
saved the DoD over $500M.113
Private Organizations’ General Policy Recommendations and Goals
National Defense Industrial Association (NDIA). NDIA is a partnership between government
and industry that facilitates growth, innovation and technological advances in the defense
industrial base114
. General Policy Efforts Relevant to Manufacturing include:
• Align Defense Industry Investment and Capacity with National Security
Requirements, Priorities and Budgets
• Pursue Efficiencies While Maintaining the Industrial Base to Ensure Military
Readiness
• Enable International Competitiveness of U.S. Industrial Base

40
• Increase Awareness, Opportunity and Utilization of Small and Mid-Tier Businesses
in Government Contracts115
.
National Association of Manufacturers (NAM). NAM is a manufacturer and industrial trade
organization that advocates for a policy agenda that helps manufacturers create jobs116
. General
Policy Efforts Relevant to Manufacturing include:
• The United States must create a dynamic environment that supports jobs and
economic growth
• The United States must adopt policies that enhance access to new markets and
support existing ones
• The United States must develop a skilled workforce that includes the best talent from
inside and outside the country
• The United States must adopt policies that adopt and retain research and development
activities and promote and protect manufacturers’ intellectual property117
.
Coalition for Prosperous America (CPA). CPA is a non-profit organization focused on
reforming trade policy and represents 2.7 million households comprised of agriculture,
manufacturing and labor members. One of the group’s leading intellectuals, Ian Fletcher,
believes that a true level playing field in global trade is impossible, and no free-market solution
will ever balance trade. In lieu, balanced trade will have to be some kind of managed trade, he
concludes.118
This organization places greater emphasis on:
• Achieving reciprocity in U.S. trade negotiations
• Extending benefits in preferential trade agreements such as the Trans-Pacific
Partnership (TPP) to private companies119
• Engaging, educating and informing citizens and local opinion leaders on
manufacturing and agricultural issues
• Raising awareness with congress on the small to medium sized enterprises.

41
NOTES
1
Barack Obama, “Remarks by the President in State of the Union Address” (speech, United States Capital,
Washington D.C, January 24, 2012), http://www.whitehouse.gov/the-press-office/2012/01/24/remarks-president-
state-union-address.
2
U.S. Census Bureau, North American Industry Classification System (NAICS) Codes, 2008,
http://www.census.gov/epcd/susb/latest/us/US31.HTM#table4, May 14, 2012.
3
U.S. Census Bureau, “2010 Annual Survey of Manufacturers: General Statistics: Statistics for Industry Groups and
Industries: 2010 and 2009,”
http://factfinder2.census.gov/faces/tableservices/jsf/pages/productview.xhtml?pid=ASM_2010_31GS101&prodTyp
e=table, 14 May 2012.
4
Mark Perry, "Top 500 U.S. Manufacturing Firms Had 2011 Sales of $5 Trillion, Almost as much as Japan's GDP."
Dailymarkets.com. January 18, 2012, http://www.dailymarkets.com/economy/2012/01/17/top-500-u-s-
manufacturing-firms-had-2011-sales-of-5-trillion-almost-as-much-as-japans-gdp/, May 14, 2012.
5
Hanna Demetria and John Seabold, "U.S. Manufacturing, Mining, Wholesale Trade and Selected Service
Industries After-tax Profits and Sales, Fourth Quarter 2011," U.S. Census Bureau News. March 26, 2012.
http://www2.census.gov/econ/qfr/current/qfr_mg.pdf, April 14, 2012.
6
Defense Science Board, “Preserving a Healthy and Competitive U.S. Defense Industry to Ensure our Future
National Security”. November 1, 2000,
http://www.acq.osd.mil/dpap/about/PEOSYSCOM2002/presentations/FINALDSBBriefing-PhilOdeen.ppt, accessed
April 15, 2012.
7
Aerospace Industry Association, “The Unseen Cost: Industrial Base Consequences of Defense Strategy Choices,”
July 1, 2009, http://www.aia-aerospace.org/assets/report_industrial_base_consequences.pdf, April 12, 2012.
8
U.S. Department of Defense and U.S. Department of Homeland Security, “Defense Industrial Base: Critical
Infrastructure and Key Resources Sector-Specific Plans as input to the National Infrastructure Protection Plan,” May
2007, http://www.dhs.gov/xlibrary/assets/nipp-ssp-defense-industrial-base.pdf, April 14, 2012.
9
Maryellen Kelley and Todd A. Watkins, “In from the Cold: Prospects for the Conversion of the Defense Industrial
Base,” American Association for the Advancement of Science, v. 268 (1995): 525-32,
http://www.lehigh.edu/~taw4/Science.html.
10
Aerospace Industry Association. “The Case for a Defense Industrial Strategy,” 2011, http://www.aia-
aerospace.org/assets/industrial-print.pdf, April 13, 2012.
11
Ibid.
12
U.S. Department of Defense and U.S. Department of Homeland Security, “Defense Industrial Base: Critical
Infrastructure and Key Resources Sector-Specific Plans as input to the National Infrastructure Protection Plan,” May
2007, http://www.dhs.gov/xlibrary/assets/nipp-ssp-defense-industrial-base.pdf, April 14, 2012.
13
Ibid.
14
Barry D. Watts, "The U.S. Defense Industrial Base: Past, Present and Future," Center for Strategic and Budgetary
Assessments (CSBA), Washington DC, 2008, http://www.csbaonline.org/wp-content/uploads/2011/02/2008.10.15-
Defense-Industrial-Base.pdf, April 14, 2012.
15
Barack Obama, President's Speech at MasterLock Manufacturing Plant," Milwaukee, WI, February 14, 2012,
http://www.todaystmj4.com/news/local/139297758.html, April 17, 2012.
16
17
Air Force Research Laboratory. "Defense Industrial Base," 2010 Defense Industrial Base Seminar and
Workshops, 2010, http://www.acq.osd.mil/ott/natibo/docs/DIB%20Conference%20Summary%2015-16Jun2010.pdf,
15 April 2012.
18
19
U.S. House of Representatives Committee on Armed Services Defense Business Panel, "Testimony of Mr. Brett
Lambert, Deputy Assistant Secretary of Defense for Manufacturing and Industrial Base Policy," U.S. House of
Representatives Committee on Armed Services Defense Business Panel, November 1, 2011,

42
http://armedservices.house.gov/index.cfm/files/serve?File_id=efff14a7-4cf8-4751-86b7-ed0330c71271, April 18,
2012.
20
Ibid., 2 and 3.
21
Defense Business Board, "A Strategic Relationship Model Between the Department of Defense and the Industrial
Base,” http://www.dbb.defense.gov/pdf/Industrial_Base_Task_Group_Report.pdf, April 12, 2012.
22
Ibid.
23
U.S. House of Representatives Committee on Armed Services. "Challenges to Doing Business with the
Department of Defense, Findings of the Panel on Business Challenges in the Defense Industry," Congressional
Record. Washington DC, 2012, http://www.gpo.gov/fdsys/pkg/CHRG.../pdf/CHRG-112hhrg70782.pdf, 17 April
2012.
24
Executive Office of the President, Office of Science and Technology Policy, Innovation for America's Economy,
America's Energy and American Skills. 2012,
http://www.whitehouse.gov/sites/default/files/microsites/ostp/fy2013rd_summary.pdf, April 18, 2012.
25
Blakely, Marion, Lawrence P. Farrell Jr,and Stan Soloway, "Defense Executives Assess Business Impacts of
Major Budget Cuts - Letter to the Secretary of Defense," Aerospace Industry Association, November 11, 2011.
http://www.aia-aerospace.org/assets/Industry%20Task%20Force%20Paper.pdf, April 20, 2012.
26
Ibid., 4.
27
Ibid., 4.
28
PPBE: Planning Programming Budgeting and Execution is a six year financial cycle where every two years, a
budget is approved to provide stable funds for the next two years, and budget predictability in the four years that
follow. The Services support this process through Title X in their submission of a Program Objective Memorandum
that the Department of Defense uses to provide input for the President's budget set to Congress every February.
29
Research, Development, Test, and Evaluation is a two year appropriation.
30
Military Construction is a five year appropriation done up to ten years in advance of execution.
31
Reprogramming authorities are granted from Congress to the Executive at thresholds generally, and specified for
high visibility efforts. Reprogramming within a category of funding is allowed. Reprogramming across categories
requires Congressional approval.
32
Undersecretary of Defense Lind, in 2010, directed that the two-year Program Objective Memorandum (POM) and
Integrated Priority List (IPL) processes be replaced with an annual process, given the high turbulence of funding.
33
U.S. Department of Commerce, “The Competitiveness and Innovative Capacity of the United States,” Washington
DC January 2012, http://www.commerce.gov/sites/default/files/documents/2012/january/competes_010511_0.pdf,
(Accessed April 14, 2012).
34
Ibid.
35
Ibid., 8.
36
Ibid.
37
Peter Whoriskey, “U.S. Losing High Tech Manufacturing Jobs to Asia,” The Washington Post, January 17, 2012,
http://www.washingtonpost.com/business/economy/us-losing-high-tech-manufacturing-jobs-to-
asia/2012/01/17/gIQA9P1S6P_print.html, (accessed February 29, 2012).
38
Jennifer McNelly, “Testimony of Jennifer McNelly, President, the Manufacturing Institute, before the Senate
Commerce Subcommittee on Competitiveness, Innovation, and Export Promotion on Promoting American
Competitiveness: Filling Jobs Today and Training Workers for Tomorrow,” April 17, 2012,
http://commerce.senate.gov/public/index.cfm?p=Hearings&ContentRecord_id=453e4d70-a954-4614-868d-
5753695e0439&Statement_id=ba3cf3d7-92c7-4d47-9266-0a89be33218a&ContentType_id=14f995b9-dfa5-407a-
9d35-56cc7152a7ed&Group_id=b06c39af-e033-4cba-9221-de668ca1978a&MonthDisplay=4&YearDisplay=2012,
(accessed April 20, 2012).
39
Executive Office of the President, National Science and Technology Council, A National Strategic Plan for
Advanced Manufacturing, February 2012,
http://www.whitehouse.gov/sites/default/files/microsites/ostp/iam_advancedmanufacturing_strategicplan_2012.pdf,
(accessed March 4, 2012).
40
Ibid., 14.
41
Ibid., 15-16.
42
Ibid., 15.
43
U.S. Department of Labor, Report of the Interagency Aerospace Revitalization Task Force, (February 26, 2008),
http://www.doleta.gov/pdf/report_aerospace_2008.pdf, (accessed March 4, 2012), 7-9.

43
44
U.S. Department of State. "Metrics/License Processing Times," Directorate of Defense Trade Controls, 2012,
http://www.pmddtc.state.gov/metrics/index.html, April 19, 2012.
45
Ibid.
46
Marc Humprhies, “Rare Earth Elements: The Global Supply Chain.” Congressional Research Service,
Washington DC, 2010: 10.
47
U.S. House of Representatives Committee on Energy and Commerce. "U.S. House of Representatives Committee
on Energy and Commerce," Testimony of Richard Bryson, April 18, 2012.
http://energycommerce.house.gov/hearings/hearingdetail.aspx?NewsID=9454, April 19, 2012.
48
Dawn Lim, “Counterfeit Chips Plague U.S. Missile Defense,” Wired.com, November 2011,
http://www.wired.com/dangerroom/2011/11/counterfeit-missil-defense/, April 14, 2012.
49
National Defense Industrial Association, “NDIA 2012 Top Issues,” 2012,
http://www.ndia.org/Advocacy/policyPublicationsResources/Documents/NDIA%202012%20Top%20Issues.pdf,
April 16, 2012.
50
Defense Production Act Committee. The Defense Production Act, 2012, http://www.dpacommittee.com/dpa.htm,
accessed April 18, 2012.
51
Office of the Undersecretary of Defense for Acquisition, Technology and Logistics,"Annual Industrial
Capabilities Report to Congress," (Washington DC, 2011).
52
Ibid.
53
Dan Senor and Saul Singer, “Start-Up Nation: The Story of Israel’s Economic Miracle.” New York, 2009.
Hachette Book Group.
54
U.S. House of Representatives Committee on Armed Services, "Testimony of Mr. Nicholas Avillas, Deputy
Assistant Secretary of Defense for Logistics, Maintenance and Infrastructure," U.S. House of Representatives
Committee on Armed Forces, February 2011,
http://armedservices.house.gov/index.cfm/files/serve?File_id=5ea27615-e4fe-41ad-8884-d205988dd772, April 17,
2012.
55
Ibid., IV.
56
Ibid., IV.
57
U.S. House of Representatives Committee on Armed Services Defense Business Panel. "Testimony of Mr. Brett
Lambert, Deputy Assistant Secretary of Defense for Manufacturing and Industrial Base Policy." U.S. House of
Representatives Committee on Armed Services Defense Business Panel. November 1, 2011.
http://armedservices.house.gov/index.cfm/files/serve?File_id=efff14a7-4cf8-4751-86b7-ed0330c71271, April 18,
2012.
58
Strategic Materials Industry Study - 2011. "Strategic Materials Industry Study Report." Industrial College of the
Armed Forces, (Washington DC, 2011):8,12-13,15,17.
59
Marc Humprhies, “Rare Earth Elements: The Global Supply Chain.” Congressional Research Service,
(Washington DC, 2010): 10.
60
Ibid., 2, 18.
61
Ibid., 24-26.
62
Armed Forces, (Washington DC, 2011): 15.
63
U.S. Government Accountability Office, “Depot Maintenance: Actions Needed to Identify and Establish Core
Capabilities at Military Depots,” GAO-09-83 Report to the Subcommittee on Readiness, Committee on Armed
Services, House of Representatives, May 2009.
64
Michael O’Hanlon, “The National Security Industrial Base: A Crucial Asset of the United States, Whose Future
May Be in Jeopardy,” 21st
Century Defense Initiative Policy Paper, Brookings: February 2011, 3.
65
Nicholas J. Avdellas, “Future Capability of DoD Maintenance Depots,” February 2011, iii.
66
Nicholas J. Avdellas, “Public-Private Dilemma,” Falls Church, VA April 11, 2005, 152.
67
Office of the Assistant Secretary of Defense (Logistics & Materiel Readiness), “Office of the Secretary of Defense
Report to Congress on Distribution of DoD Depot Maintenance Workloads, Fiscal Years 2009-2011,” April 2010.
68
Nicholas J. Avdellas, “Future Capability of DoD Maintenance Depots,” February 2011, 1-13.
69
U.S. Government Accountability Office, “Depot Maintenance: DOD’s Report to Congress on Its Public-Private
Partnerships at Its Centers of Industrial and Technical Excellence (CITEs) is Not Complete and Additional
Information Would Be Useful,” GAO-08-902R, July 2008, 1.
70
U.S. Army Materiel Command, “Army Public-Private Partnership of the Organic Base,” Handbook of Army
Public-Private Partnering, 21 September 2004, 8-9.

44
71
Merrick Carey, et al, “Public-Private Partnerships and the Future of the Army Industrial Enterprise,” The
Lexington Institute, June 2006, 4.
72
Kate Vitasek, Jerry Cothran, and Steve Rutner, “Best Practices of Public Private Partnering: Developing a win-
win strategy for working with depots,” The University of Tennessee Center for Executive Education, Spring 2007, 5.
73
U.S. Government Accountability Office, “Depot Maintenance: DOD’s 50-50 Reporting Should Be Streamlined,”
GAO-03-1023 Report to Congressional Committees, September 2003, 5.
74
Jacques Gansler, “Global War on Contractors Must Stop,” ExecutiveBiz Blog, January 15 2010, at
http://www.blog.executivebiz.com/jacques-gansler-global-war-on-contractors-must-stop/7105, (accessed November
27, 2011).
75
Vitasek, et al, Best Practices, 12.
76
GAO, DOD’s Report to Congress on Its Public-Private Partnerships, 4.
77
U.S. Department of Defense, “DoD Weapon System Acquisition Reform Product Support Assessment,”
November 2009, 43.
78
Jacques Gansler, “Global War on Contractors Must Stop,” ExecutiveBiz Blog, January 15 2010, at
http://www.blog.executivebiz.com/jacques-gansler-global-war-on-contractors-must-stop/7105, (accessed November
27, 2011).
79
Vitasek, et al, Best Practices, 14.
80
GAO, DOD’s Report to Congress on Its Public-Private Partnerships, 3-5.
81
Vitasek, et al, Best Practices, 15-16.
82
Goure, Back to the Future, 4.
83
National Defense Industrial Association, About the NDIA, 2012,
http://www.ndia.org/Resources/MediaRoom/Pages/default.aspx, April 18, 2012.
84
National Defense Industrial Association, “NDIA 2012 Top Issues.” 2012.
April 16, 2012.
85
National Association of Manufacturers, About the NAM: Manufacturing in America. 2012.
http://www.nam.org/About-Us/About-the-NAM/US-Manufacturers-Association.aspx, April 17, 2012.
86
National Association of Manufacturers, "A Manufacturing Renaissance: Four Goals for Economic Growth."
National Association of Manufacturers. 2012.
http://www.nam.org/~/media/AF4039988F9241C09218152A709CD06D.ashx, April 17, 2012.
87
Ian Fletcher, Free Trade Doesn’t Work (Washington, DC: U.S Business and Industry Council, 2010), 83-84.
88
Scott Otterman, "CPA Wants New Trade Policy Focus on Reciprocity, SOE Exclusion." Coalition for a
Prosperous America. March 22, 2012. http://www.prosperousamerica.org/2012/03/22/cpa-wants-new-trade-policy-
focus-on-reciprocity-soe-exclusions, April 18, 2012.
89
90
Ibid.
91
Ibid.
92
April 16, 2012.
93
Ibid.
94
U.S. House of Representatives Committee on Science, Space and Technology, Subcommittee on Technology and
Innovation, "Testimony of Dr. Patrick Gallagher; Overview of the 2013 Budget for the National Institute of
Standards and Technology." March 6, 2012.
http://commerce.gov/sites/default/files/documents/2012/march/gallagher_house_030612.pdf, April 18, 2012.
95
96
Ibid.
97
National Association for Manufacturers, "Jobs for America, Investment and Policies for Economic Growth and
Competitiveness," National Association of Manufacturers, 2012, http://www.nam.org/System/Capture-
Download.aspx?id=58F813B0D1E643DC91E564FE4C3B3C2F, April 21, 2012.
98
Ibid.

45
99
April 16, 2012.
100
NIST, “About MEP,” NIST Hollings Manufacturing Extension Program, http://www.nist.gov/mep/about.cfm,
April 17, 2012.
101
NIST, “About EL,” NIST Engineering Laboratory, http://www.nist.gov/el/aboutbfrl.cfm, April 17, 2012.
102
U.S. Department of Energy, “EERE: Advanced Manufacturing Office Home Page,” Advanced Manufacturing
Office, http://www1.eere.energy.gov/manufacturing/index.html, April 17, 2012.
103
U.S. Department of Energy, “EERE: Advanced Manufacturing Office: Accomplishments,” Advanced
Manufacturing Office, http://www1.eere.energy.gov/manufacturing/about/accomplishments.html, April 17 2012.
104
The White House, “Advanced Manufacturing Partnership,” Office of Science and Technology Policy,
http://www.whitehouse.gov/administration/eop/ostp/pcast/amp, April 17, 2012.
105
Manufacturing Institute, “About Us,” About Manufacturing Institute,
http://www.themanufacturinginstitute.org/About/About-Us.aspx, April 18, 2012.
106
National Science Foundation, “About the Directorate for Engineering,” National Science Foundation Directorate
for Engineering, http://www.nsf.gov/eng/about.jsp, April 18, 2012.
107
Innovation, "Testimony of Dr. Patrick Gallagher; Overview of the 2013 Budget for the National Institute of
http://commerce.gov/sites/default/files/documents/2012/march/gallagher_house_030612.pdf, April 18, 2012.
108
The White House, “President Obama to Announce New Efforts to Support Manufacturing Innovation, Encourage
Insourcing,” Office of the Press Secretary, http://www.whitehouse.gov/the-press-office/2012/03/09/president-
obama-announce-new-efforts-support-manufacturing-innovation-en, April 22, 2012.
109
U.S. Department of Defense, “DoDManTech,” Department of Defense Manufacturing Technology Program,
https://www.dodmantech.com/program/index.asp, April 18, 2012.
110
Office of the Secretary of Defense, “Research Directorate: Defense Laboratory Enterprise,” Research Directorate
Office of the Assistant Secretary of Defense for research and Engineering,
http://www.acq.osd.mil/rd/laboratories/aboutlabs/index.html, April 18, 2012.
111
DARPA, “About,” Defense Advanced Research Projects Agency, http://www.darpa.mil/About.aspx, April 18,
2012.
112
Defense Production Act Committee, “DPA Committee Website,” Defense Production Act,
http://www.dpacommittee.com/dpa.htm, April 17, 2012.
113
NCDMM, “NCDMM Overview,” NCDMM Downloads, http://ncdmm.org/wp-
content/uploads/2011/11/NCDMM-Overview-111101.pdf, April 17, 2012.
114
National Defense Industrial Association, “Media Room,” About the National Defense Industrial Association,
http://www.ndia.org/Resources/MediaRoom/Pages/default.aspx, April 17, 2012
115
April 16, 2012.
116
National Association of Manufacturers, “About the NAM,” About the NAM – Manufacturing in America,
http://www.nam.org/About-Us/About-the-NAM/US-Manufacturers-Association.aspx, April 17, 2012.
117
118
Ian Fletcher, Free Trade Doesn’t Work (Washington, DC: U.S Business and Industry Council, 2010), 83-84.
119
Scott Otterman, "CPA Wants New Trade Policy Focus on Reciprocity, SOE Exclusion." Coalition for a
Prosperous America. March 22, 2012. http://www.prosperousamerica.org/2012/03/22/cpa-wants-new-trade-policy-
focus-on-reciprocity-soe-exclusions, April 18, 2012.

46
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49
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