To achieve its core mission set and in the face of the rapid development of potential adversary capabilities in space, the U.S. Space Force (USSF) needs to fundamentally rethink how it defines requirements. To support this necessary transformation, the authors identify implementable changes to USSF capability requirements development that leverage best practices in requirements development and digital engineering.

Transforming Capability Requirements Development in the United States Space Force

Lauren A. Mayer, Megan McKernan, Yool Kim, William Shelton, Jim Mignano, Sarah W. Denton, Arianne Collopy, Heidi Peters, Grace Van Valkenburg, Igor M. Brin, et al.

ResearchPublished Jul 25, 2024

To achieve its core mission set, the U.S. Space Force (USSF) must determine the key capabilities it needs and then decide how to pursue them. The objectives of these two critical activities are often in opposition. Operational concepts and threat-informed force designs determine aspirational future operational space needs, while technical feasibility and resourcing budgets limit the affordable materiel options. The translation of an operational need to the acquisition of a materiel solution requires weighing these various objectives, and occurs through the development of operational capability requirements (CRs).

The majority of space capabilities that USSF develops, fields, and operates are joint capabilities that enhance other services' military operations. Thus, capability requirements development (CRD) necessitates integrating and coordinating the information, expertise, and objectives of numerous stakeholders and processes across USSF, other services, and the joint community. The complexity of CRD, therefore, may benefit from some level of standardization. There is concern among USSF stakeholders, however, that such standardization could impede USSF's flexibility, agility, and responsiveness to operationally relevant timelines.

In the face of the rapid development of potential adversary capabilities in space, USSF needs to fundamentally rethink how it defines requirements. To support this necessary transformation, the USSF Chief Strategy and Resourcing Office (CSRO) asked RAND researchers to identify implementable changes to USSF CRD that leverage best practices in requirements development and digital engineering.

Key Findings

  • There is no codified, repeatable, comprehensive capability development (CD) process in USSF that clearly defines an entry point and an exit point along with a series of steps that lay out alternative paths from a capability need to a capability solution.
  • There appears to be a lack of shared understanding of CD processes, roles and responsibilities, and key terms for space CD across USSF, the joint force, and other key stakeholders. Such limited situational awareness can impede integration and coordination efforts, reduce speed, and lead to missed opportunities and redundancies.
  • USSF lacks a comprehensive, enterprise-wide CRD vision; consequently, USSF does not have the goals needed to guide roles and responsibilities (R&R), processes, digital transformation, and workforce needs.
  • Without a clear CRD vision, USSF also lacks clarity on space CRD R&R, which is further complicated by the numerous organizational and policy changes that have occurred since the standup of USSF.
  • Although USSF CRD stakeholders articulated some potential benefits of digital CRD, the current structured information environment needed to achieve USSF's digital vision is not mature. This limits visibility into all space CRs and creates barriers to achieving potential benefits from digital CRD.
  • The previously defined structural changes with the USSF CRD organizations have resulted in several potential workforce imbalances because the USSF Headquarters CRD function now has greater responsibilities with fewer requirements-certified staff and subject-matter expertise than prior to USSF inception.

Recommendations

  • CSRO should partner with the Office of the Assistant Secretary of the Air Force for Space Acquisition and Integration (SAF/SQ) and the operational community to develop overarching policy and guidance for CD.
  • The idealized USSF CD process presented in this analysis should be used to inform CD policy and guidance, including its R&R, coordination opportunities with stakeholders that interface with CD, and digital flows.
  • CSRO should formally define its vision in policy and guidance. The vision should include guidance for R&R, processes, transition to a digital information environment, and workforce needs.
  • CSRO should outline the R&R for USSF CRD in its vision. These R&R could include a lead for all USSF CRD efforts, a USSF CRD point-of-contact for services, a requirements sponsor and CRD process lead, a lead for CRD coordination, and a lead for CRD transformation to digital CRs.
  • CSRO should define flexible CRD document development processes to guide workforce.
  • CSRO should define its vision for digital CRD, explain how DE can support CRD in innovative ways, and ensure that those spearheading the implementation of USSF's digital vision understand the nuances of the CRD use case.
  • CSRO should "right-size" the CSRO CRD workforce to current and newer R&R.

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Document Details

  • Copyright: RAND Corporation
  • Availability: Available
  • Year: 2024
  • Print Format: Paperback
  • Paperback Pages: 130
  • Paperback Price: $49.95
  • Paperback ISBN/EAN: 1-9774-1379-X
  • DOI: https://doi.org/10.7249/RRA2332-1
  • Document Number: RR-A2332-1

Citation

RAND Style Manual

Mayer, Lauren A., Megan McKernan, Yool Kim, William Shelton, Jim Mignano, Sarah W. Denton, Arianne Collopy, Heidi Peters, Grace Van Valkenburg, Igor M. Brin, and Kristin J. Leuschner, Transforming Capability Requirements Development in the United States Space Force, RAND Corporation, RR-A2332-1, 2024. As of April 8, 2025: https://www.rand.org/pubs/research_reports/RRA2332-1.html

Chicago Manual of Style

Mayer, Lauren A., Megan McKernan, Yool Kim, William Shelton, Jim Mignano, Sarah W. Denton, Arianne Collopy, Heidi Peters, Grace Van Valkenburg, Igor M. Brin, and Kristin J. Leuschner, Transforming Capability Requirements Development in the United States Space Force. Santa Monica, CA: RAND Corporation, 2024. https://www.rand.org/pubs/research_reports/RRA2332-1.html. Also available in print form.
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The research reported here was commissioned by the Deputy Chief, Strategy, Requirements, Plans and Programs, Headquarters USSF S5/8 and was conducted within the Resource Management Program of RAND Project AIR FORCE.

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