WIXLIB

Department of the ArmyHeadquarters, United States ArmyTraining and Doctrine CommandFort Eustis, Virginia 23604-5700*TRADOC Regulation 71-2028 June 2013Force DevelopmentCONCEPT DEVELOPMENT, CAPABILITIES DETERMINATION, ANDCAPABILITIES INTEGRATIONFOR THE COMMANDER:OFFICIAL:DAVID D. HALVERSONLieutenant General, U.S. ArmyDeputy Commanding General/Chief of StaffCHARLES E. HARRIS, IIIColonel, GSDeputy Chief of Staff, G-6History. This publication is a major revision to TRADOC Regulation 71-20, published23 February 2011. Significant changes are listed in the Summary of Change.Summary. This regulation prescribes policy and responsibilities for the development ofwarfighting concepts, the determination of capability requirements, and the integration ofcapabilities throughout the Army. This regulation also prescribes the U.S. Army Training andDoctrine Command (TRADOC) responsibilities and policy for the implementation of the JointCapabilities Integration and Development System (JCIDS), and how TRADOC’s capabilitydevelopment efforts integrate with the Defense Acquisition System.Applicability. This regulation applies to all Army organizations and force modernizationproponents that conduct concept development, experimentation, and capabilities developmentactivities. The term capabilities development includes identifying, assessing, and documentingchanges in doctrine, organization, training, materiel, leadership and education, personnel,facilities (DOTMLPF) and any policy implications that collectively produce the forcecapabilities and attributes prescribed in approved concepts or other prescriptive guidance.*This regulation supersedes TRADOC Regulation 71-20 dated 23 February 2011.1

TRADOC Reg 71-20Proponent and exception authority. The proponent of this regulation is the TRADOCDirector, Army Capabilities Integration Center (ARCIC)/Deputy Commanding General, Futures.The proponent has the authority to approve exceptions or waivers to this document consistentwith controlling law and regulations. Activities may request a waiver to this regulation byproviding justification that includes a full analysis of the expected benefits and must includeformal review by the activity’s senior legal officer. All waiver requests will be endorsed by thecommander or senior leader of the requesting activity and will be forwarded through higherheadquarters to Director, ARCIC (ATFC-O), 950 Jefferson Avenue, Fort Eustis, VA 236045767.Army management control process. This regulation does not contain management controlprovisions.Supplementation. Supplementation of this regulation is prohibited unless specifically approvedby the Director, ARCIC/Deputy Commanding General, Futures (ATFC-O), 950 JeffersonAvenue, Fort Eustis, VA 23604-5767.Suggested improvements. Users are invited to send comments and suggested improvements onDepartment of the Army (DA) Form 2028 (Recommended Changes to Publications and BlankForms) through channels to Director, ARCIC/Deputy Commanding General, Futures (ATFC-O),950 Jefferson Avenue, Fort Eustis, VA 23604-5767.Distribution. This publication is approved for public distribution and is available on theTRADOC Homepage at http://www.tradoc.army.mil/tpubs.2

TRADOC Regulation 71-20Summary of ChangeTRADOC Regulation 71-20Concept Development, Capabilities Determination, and Capabilities IntegrationThis major revision, dated 28 June 2013o Modifies U.S. Army Training and Doctrine Command’s requirements to comply with higherheadquarters revised guidance including use of Joint Capabilities Integration and DevelopmentSystem alternate formats specified in the Manual for the Operation of the Joint CapabilitiesIntegration and Development System. Updated guidance includes the Joint CapabilitiesIntegration and Development System, Chairman, Joint Chief of Staff Instruction 3170.01H, andthe Manual for the Operation of the Joint Capabilities Integration and Development System.o Updates doctrinal terminology (throughout).o Adds references to Army Regulation 5-22, The Army Force Modernization Proponent Systemas a key higher headquarters regulation which the U.S. Army Training and Doctrine Commandsupports (para 1-1).o Introduces the use of the Agile Capabilities Life Cycle Process as described in theHeadquarters, Department of Army standard operating procedure approved by the Vice Chief ofStaff of the Army (para 1-4).o Updates the organization of the Army Capabilities Integration Center (figure 2-1).o Adds Director, Army Capabilities Integration Center responsibilities for oversight of the Armycapability integration efforts and the validation of Army needs through the Network IntegrationEvaluations (para 2-10.).o Updates the document signed by the Director, Army Capabilities Integration Center thatprovides guidance for concepts and capabilities development, entitled “ARCIC Concepts andCapabilities Guidance (ArG)” (paras 2-10, 2-11, and 5-1).o Clarifies the role of the force modernization proponents across the Army in the areas ofConcept Development, Capabilities Determination, and Capabilities Integration from within theCenters of Excellence, Capabilities Development and Integration Directorates and non-U.S.Army Training and Doctrine Command proponent organizations (paras 2-14, 2-15, and 2-16).o Clarifies the role of Integrated Capabilities Development Teams as temporary teamingarrangements for capabilities development and documentation efforts and delineates thepermanent teaming arrangements supporting the U.S. Army Training and Doctrine Commandtwo-year cycle (para 2-14).3

TRADOC Reg 71-20o Clarifies U.S. Army Training and Doctrine Command Capability Manager commandrelationships (paras 2-16 and 2-20).o Updates the lead organization for the Training domain from U.S. Army Training and DoctrineCommand G-7 to U.S. Army Combined Arms Center (paras 2-16, 8-1, and 8-5; table 8-1).o Adds responsibilities and requirements to execute early analysis in preparation for an analysisof alternatives for a proposed solution (initial capabilities document) or a materiel requirement(capability development document/capability production document) (para 2-19 and 7-6).o Updates the Capabilities Integration governance principles and senior leader governanceforums used to support U.S. Army Training and Doctrine Command core functions (Chapter 5).o Updates the Capabilities needs analysis process (para 7-8).o Adds guidance on required training for capability developers in the Army (para 8-1 andAppendix D).o Adds clarification on how non-materiel requirements are handled and integrated (para 8-2).o Adds clarification that Combatant Commanders’ input for capability development efforts willbe included in proposed solutions and materiel requirements (para 8-9).o Adds mandated guidance from memorandum signed 31 August 2012 by Headquarters,Department of Army Deputy Chief of Staff, G-3/5/7 “Process to Introduce Requirement toMeasure Protection Factor of Shielding Against Low Level Radiation”, and the use of a draftcapability development document to inform the Technology Development Strategy and Requestsfor Proposals following the Milestone A acquisition decision (para 8-11)o Deletes mandated use of the Strategic Framework (para 8-13).o Updates Chapter 10 to reflect Rapid Acquisition/Rapid Equipping actions the U.S. ArmyTraining and Doctrine Command performs, to include the Agile Capabilities Life Cycle Process(para 10-4).4

TRADOC Regulation 71-20Table of ContentsPageChapter 1 Introduction . 91-1. Purpose . 91-2. References . 91-3. Explanation of abbreviations and terms . 91-4. Guidance . 9Chapter 2 Responsibilities . 12Section I Headquarters, TRADOC . 122-1. Commanding General (CG), U.S. Army Training and Doctrine Command (TRADOC)122-2. Deputy Commanding General (DCG), Futures . 132-3. TRADOC Deputy Chief of Staff (DCS), G-1/4 . 142-4. TRADOC DCS, G-2 . 142-5. TRADOC DCS, G-3/5/7 . 152-6. TRADOC DCS, G-6 . 152-7. TRADOC DCS, G-8 . 152-8. TRADOC Safety Office . 152-9. TRADOC Office of the Staff Judge Advocate (OSJA). 16Section II Army Capabilities Integration Center (ARCIC) . 162-10. Dir, ARCIC . 162-11. Deputy Director, ARCIC . 192-12. ARCIC Directorates . 202-13. Brigade Modernization Command (BMC) . 212-14. Chair, Integrated Capabilities Development Team (ICDT) or Force ModernizationProponent. . 21Section III Force Modernization Proponents . 232-15. Common responsibilities . 232-16. Centers of Excellence (CoEs) . 272-17. Commander, U.S. Army Combined Arms Center . 282-18. Commander, U.S. Army Combined Arms Support Command (CASCOM) and theSustainment CoE (SCoE). 29Section IV Separate TRADOC Activities . 292-19. Dir, TRADOC Analysis Center (TRAC) . 292-20. TRADOC Capability Managers (TCMs)/TRADOC Project Office (TPO) . 312-21. Commandant, U.S. Army War College (USAWC) . 32Chapter 3 Concept Development and Learning . 323-1. General. 323-2. Strategic guidance. 333-3. Operational environment . 333-4. Army Concept Framework (ACF) . 333-5. Development of Army concepts . 333-6. Concept of operations (CONOPS) and white papers . 343-7. Campaign of Learning (CoL) . 34Chapter 4 Requirements (Capabilities) Determination . 374-1. Capabilities development and integration in the Army . 375

TRADOC Reg 71-204-2. Joint Capabilities Integration and Development System (JCIDS) Application . 374-3. Alternative studies and paths into JCIDS . 384-4. Joint capability areas (JCA). 384-5. Army implementation of JCIDS . 394-6. Accelerated capabilities development . 404-7. Security and program protection . 40Chapter 5 . 41Capabilities Integration . 415-1. Overview . 415-2. Levels of integration construct . 435-3. Governance principles . 45Chapter 6 . 46Activities Supporting Concept Development, Capabilities Determination, and CapabilitiesIntegration Core Functions . 466-1. Modeling and simulation . 466-2. Studies and analysis (S&A) . 476-3. Experimentation. 496-4. Operational architecture development and integration . 516-5. Science and technology . 526-6. Scenarios . 54Chapter 7 Capabilities Analysis . 557-1. The Capabilities-Based Assessment (CBA) process . 55Section I CBA Steps . 577-2. Functional area analysis (FAA) . 577-3. Functional needs analysis (FNA) . 587-4. Functional solution analysis (FSA) . 59Section II Other Capabilities Analyses . 617-5. Conducting trades in a joint, resource constrained environment. 617-6. Analysis of alternatives (AoA) . 627-7. Requirements analysis (KPPs, KSAs, and performance attributes) . 657-8. Capabilities needs analysis (CNA) . 667-9. Warfighter outcomes analysis . 667-10. Cost-Benefit Analysis (C-BA). 667-11. Business case analysis (BCA) . 68Chapter 8 Documenting Resource-Informed Doctrine, Organization, Training, Materiel,Leadership and Education, Personnel, and Facilities (DOTMLPF) Solutions . 688-1. General. 68Section I Documenting non-materiel solutions . 718-2. Joint and Army DOTmLPF Change Recommendations . 718-3. Documenting doctrine requirements . 728-4. Documenting organizational requirements . 748-5. Documenting training requirements . 768-6. Documenting leadership and education requirements . 778-7. Documenting personnel requirements . 778-8. Documenting facilities requirements . 78Section II Documenting Materiel Solutions . 796