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FOREWORD
On June 29, 1994, the Secretary of Defense directed sweeping reform of military
specifications and standards. The Secretary directed the Department of Defense to make greater
use of performance and commercial requirements in the acquisition process. Performance
specifications are preferred over detail specifications.
The SD-15 is intended to be a living document that will undergo changes as required. If
you have any recommendations on improving this document, please send your comments to:
/signed/
Walter B. Bergmann, II
Chairman
Defense Standards Improvement
Council
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PERFORMANCE SPECIFICATION GUIDE
TABLE OF CONTENTS
PREFACE 1
INTRODUCTION 3
MARKET ANALYSIS 5
REQUIREMENTS CONSIDERATIONS 9
CONFIGURATION CONTROL 11
LOGISTICS SUPPORT 12
REPROCUREMENT 13
VERIFICATION 14
FORMAT 16
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INTRODUCTION 17
REQUIREMENTS CONSIDERATIONS 17
REQUIREMENTS CONSIDERATIONS 19
CONTENT 20
REQUIREMENTS CONSIDERATIONS 23
REQUIREMENTS DEVELOPMENT 24
APPENDIX A REFERENCES 29
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PERFORMANCE SPECIFICATION GUIDE
Guide Roadmap
Performance Specification
Guide
Section 2 -
Section 1 - Section 3 - Section 4 -
Standard Appendices
Writing Performance Guide Program-unique
Performance
Requirements Specifications Specificati ons
Specifications
- Requirements
Considerat ions
- Configuration
Control
- Logistics Support
- Reprocurement
- Verification
- Format
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PERFORMANCE
SPECIFICATION
GUIDE
PREFACE
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SECTION ONE
INTRODUCTION
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- Federal specifications
MIL-PRF- documents (see DoDISS)
- Standard performance specifications
Detail documents
III - Non-Government standards* ASTM or SAE standards
- Federal specifications
- Detail specifications*** MIL-DTL- documents (see DoDISS)
Standards, specifications, and related Purchase descriptions
publications issued by the Government outside
IV Product descriptions
the military or federal series for the non-
repetitive acquisition of developmental items Program-peculiar or system specifications
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Sometimes we think we know exactly produce hand saws when they may have a
how a needed product should be better item to propose.
manufactured, and we know that the The problem becomes more acute when
manufacturer does not know how to we are not absolutely sure how to make a
manufacture it. If we can communicate that product, or we communicate our knowledge
knowledge clearly, then we have done little poorly, or we truly need improved products.
harm. If all goes well, we will get a product In these cases, then we may have done
that will meet our needs. On the other hand, serious harm by including how to
if the manufacturer knows how to make the information in our specification. That is why
product, we may be missing an opportunity. we need performance specifications.
By using a detail specification we have Performance specifications leave out
automatically limited the possibility of unnecessary how to or detail and give the
obtaining an improved, less costly, or more manufacturer latitude to determine how to
reliable product because we have constrained best meet our stated needs. The word
the ability of the manufacturer to be unnecessary is emphasized because some
innovative. Consider the manufacture of detail requirements are necessary in a
common tools. Hand saws have not changed performance specification. Almost always
for generations, and they are still used in the need for detail is generated by interface
many applications. Theyre not circular requirements.
saws, or band saws, or jig saws, but they are
still useful. It would be shortsighted,
however, to constrain manufacturers to
MARKET ANALYSIS
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The tractor shall be capable of utilizing contractor supplied Provides interface requirement
attachments for standard category 1, 3 points mounting,
front and rear.
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Definitions
Guide Specification. This type of specification identifies standard, recurring requirements that
must be addressed when developing new systems, subsystems, equipments, and assemblies. Its
structure forces appropriate tailoring to meet user needs. The content and format requirements
for this specification are covered by DoD 4120.3-M, Defense Standardization Program Policies
and Procedures. It is a type of performance specification.
Interchangeability. A condition which exists when two or more items possess such functional
and physical characteristics as to be equivalent in performance and durability, are capable of
being exchanged one for the other without alteration of the items themselves or of adjoining items,
except for adjustment, and without selection for fit and performance.
Interoperability. 1. (DoD, NATO) The ability of systems, units or forces to provide services
to and accept services from other systems, units or forces and to use the services so exchanged to
enable them to operate effectively together. 2. (DoD) The condition achieved among
communications-electronic equipment when information or services can be exchanged directly and
satisfactorily between them and/or their users.
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Requirement. Any condition, characteristic, or capability that must be achieved and is essential
to the end items ability to perform its mission in the environment in which it must operate is a
requirement. Requirements must be verifiable.
REQUIREMENTS CONSIDERATIONS
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CONFIGURATION CONTROL
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Government. Since final authority on such Government must ensure that systems
requirements will continue to rest with the produced earlier and still in use can be
Government, the acquisition plan should not supported. Interchangeability and
establish the limits on the contractors interoperability criteria must be key
control authority, other than for changes that elements of the Governments requirements,
affect the performance requirement, and they must be clearly spelled out in the
regardless of maintenance strategy. solicitation and in the performance
Government performance specifications for specification down to the lowest level of the
a systems lower level items that are to be system being maintained.
separately procured must be developed For example, recently-awarded
around contractor defined interchangeability contracts to dual sources specifically require
and interoperability criteria for such items that the two new products be
that are included in the Governments interchangeable and interoperable with each
product baseline. other as well as with the previous product.
The key is to require interchangeability at
the level at which the system will be
supported in the fieldby the contractor or
EXAMPLE
by DoD.
Interchangeability:
All splice parts having the same military
part number shall be physically and
functionally interchangeable without the
need for modification of such items or of the
splicing equipment.
LOGISTICS SUPPORT
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REPROCUREMENT
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assembly may require a new lubricant, or a reference the current specification and
different shaped mount may require smaller technical data package (TDP) for the
bolts. Changes which affect logistics support item, if one is available, but state
must be identified and carefully weighed. explicitly that the TDP is provided for
Interchangeability to the spare part level information only. This limitation
may be required to ensure that logistics encourages innovation and production
support is not critically degraded. improvements.
Conversely, if a good operational level of
repair analysis is performed early in the
program, it may be determined that the
part(s) in question shouldnt be procured as
spares. If this repair analysis was not made An Industry Response to a Draft
early, a mid-product-life analysis to Solicitation:
establish a baseline may be useful.
A performance-based reprocurement The solicitation package is overwhelming.
strategy follows these steps: The voluminous requirements for
information and data is very discouraging for
Identify the essential performance a small business....In our opinion, the
requirements to be included in the [Government] objective should be to buy
solicitation before issuing the request for hardware that meets requirements. In this
proposal (RFP), or request for quote solicitation, it appears to us that the
(RFQ). [Government] is more interested in a paper
writing contest, where document submittals
Seek input from potential offerors are more important than the product.
through requests for information, draft
requests for proposal, and advanced
planning briefings for industry. Use
A performance specification approach
these venues to ensure that all interested
to acquisition represents a shift from the
parties understand the Governments
build-to-print environment of the past. It
requirements and the offerors range of
requires the user to identify essential
capabilities. This dialoguewhich
requirements for the item and areas in which
should include the user, the procuring
improvements would be desirable. It
activity, and potential offerorsshould
requires the offeror to identify specific
focus on ensuring that the required
improvements, including any design and
performance is precisely defined.
development effort. It clearly states that
such improvements will be evaluated as part
Limit the amount of information to be
of the best value source selection, that is,
submitted by offerors. Information to
selection will be based upon the best overall
help the Government determine which
value to the Government in terms of
offeror will provide best value and that
performance, schedule and cost rather than
necessary to demonstrate compliance
cost alone.
with the requirements of the solicitation
should be included. The RFP should
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VERIFICATION
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FORMAT
The formats for performance specifications can be found in the following documents:
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DoD 4120.3-M
Standard Performance Specifications MIL-STD-961D
Guide Specifications DoD 4120.3-M
Program-unique Specifications MIL-STD-961D
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SECTION TWO
INTRODUCTION
REQUIREMENTS CONSIDERATIONS
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EXAMPLES EXAMPLES
The capacitor shall have a capacitance value Lead Spacing. The lead spacing for the
of 0.1 microfarads 10 percent. device shall be 0.200 0.015 inches.
EXAMPLE EXAMPLE
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SECTION THREE
GUIDE SPECIFICATIONS
REQUIREMENTS CONSIDERATIONS
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EXAMPLE
3.2.1.1 General
With stated exceptions, the service life of the landing gear components shall be
________________.
..........................................................................................................................
4.2.1.1 General.
The landing gear component service life shall be evaluated by ______________. The
ground flotation characteristics shall be evaluated by ____________. Performance during and
after operation on surfaces of specified roughness shall be evaluated by _________.
CONTENT
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See AFGS-87253 on use of guide
specifications for additional information on
the intent of design-specific performance
parameters.
Because they are used in development,
guide specifications should also include the
verification requirements for each
performance parameter. The verification
requirements generally provide a range of
options which may be selected for a specific
application. The preferred form for the
statement of performance parameters is in
terms of required end results and not in
An essential attribute of the generic
terms of how to achieve the end result. It
guide specification is the inclusion of a
may be necessary or desirable to include
handbook that provides guidance for filling
design specific performance parameters for
in the blanks when preparing an end item
contractual tracking of technical performance
development specification. The handbook
measurements. In this case, alternative sets
provides guidance for definition of
of language would normally be included to
performance parameters and selection of the
address the alternative design approaches or
verification requirements. It provides a
use of alternative technologies.
rationale for requirements, lessons learned,
The guide specification will include and general and/or specific guidance. The
performance parameters for the end item guidance varies in level of detail: it may
(product), and its associated production and discuss the preferred form, suggest language
support processes. The purpose of any for design specific requirements, or
military acquisition program is to procure recommend detailed analytical techniques for
systems which satisfy user needs. These derivation of numerical requirements.
top level requirements are stated in terms of
Technical requirements for elements
operational capability to achieve specific
below the system level are defined through a
military objectives. Since the intent is to
process of decomposition which produces
avoid requirements which are design
derived and allocated requirements common
solutions, guide specifications will contain
for like systems, subsystems, equipment,
both firm, design-independent performance
and assemblies. The format of a guide
requirements and blanks which must be filled
specification requires the user to tailor the
in by each offeror to represent his or her
document to the specific application.
design solution.
Guide specifications are standardization
documents that identify recurring essential
requirements that must be tailored for each
acquisition or contractor selection. Unlike
military specifications, which standardize
fixed form, fit, and function requirements for
PERFORMANCE SPECIFICATION GUIDE
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SECTION FOUR
PROGRAM-UNIQUE SPECIFICATIONS
Develop a Detail
Task Define an Translate an Operational Specification from
Operational Need Need into a Performance the Performance
Specification Requirement
Commercial Item
Mission Need Description Technical Data
Statement Guide Specification Package
Documents Operational Standard Performance Drawing
Requirement Specification In-house Detail
Purchase Request Program-unique Specification
Performance
Specification
REQUIREMENTS CONSIDERATIONS
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REQUIREMENTS DEVELOPMENT
Even though program-unique documents precisely that. The evaluation of the system
are used for development programs, they should recognize this condition.
should encourage the use of Program-unique performance
nondevelopmental piece parts, components, specifications become the top level item
equipments, and subsystems wherever specification and take precedence over
possible (i.e., standard performance drawings. They can, of course, be
specifications). Program-unique documents supplemented with drawings and process
should use performance terms whenever control specifications, but the drawings
practical. should be for guidance only.
Breaking down a systems requirement While the system requirements are being
into its components and sub-requirements developed and the performance specification
allows better definition of the requirement in is being prepared, acquisition management
terms of function and performance. Defining may identify additional features they wish
the requirement in terms of the lowest level to incorporate. As long as the technical
functions that must be incorporated will characteristics which evolve are the best way
help identify conflicts and inconsistencies. to define the users true needs, it is
Alternative solutions may also be revealed in appropriate to make these amendments.
the process. However, once the requirement has been
In developing the specification, only defined in technical terms, it may be difficult
those aspects of the requirement essential to to modify.
providing the customer with a viable and In addition to performance
practical solution should be specifically specifications for the end-item hardware or
identified. In other words, the amount of system, similar requirements are necessary
detail in the definition of requirements should for system support activities. These could
be kept to the minimum essential to include such elements as system software,
adequately describe the users need. Optional system support hardware and software, all
extras which are desirable or nice to elements of logistics support, training, and
have, should also be kept to a minimum, training equipment. These requirements
and if included, should be identified as must reflect the users needs, as well as
DoDs long-term concept for employment
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and support of the item, since they have For example, a performance
direct bearing on an offerors approach to specification can describe an engine that
meeting the customers needs. powers a tank or a helicopter, and a
performance specification can also describe
In cases of reprocurement of hardware
the shaft that connects the engine to the rest
for fielded systems when a performance
of the vehicle, since the shaft can be defined
specification will be used for the first time,
in terms of dimensional envelope, power
the current technical data package is the
transmission requirements, endurance or
starting point for potential offerors. The
fatigue life, interfaces, and so forth.
data package is provided for information
only; the procuring activity must clearly
enunciate the users needs in the
requirements documents and eliminate all
requirements which do not add value.
In many cases, a non-development item
may be procured to meet a users defined
need. While minor engineering effort clearly
may exist in this instance, its cost is borne
by the potential contractor. This approach
is little different from that of a commercial
endeavor. In that sense, minimizing data
requirements in the solicitation becomes Many of these characteristics are easily
even more important because commercial identified since the prime contractor today is
manufacturers do not expect extensive data buying the item to a performance
requirements. specification. Examples of this latter
category would include landing gear or an
One of the largest areas of uncertainty auxiliary power unit for a helicopter. The
on the part of specification writers revolves helicopter manufacturer defines what is
around the question How low should I go? needed to meet the system performance
in the development of performance requirements, and the subcontractor with the
specifications. In other words, To what specific landing gear or auxiliary power unit
level do I control the hardware? Two expertise designs and develops the item. In
answers are useful. First, the writer should fact, DoD could be in the same situation
not specify below the lowest replaceable (although its engine contractor is not),
unit. It makes little sense to specify below because the engine may be provided as
the level at which we will remove and Government furnished equipment (GFE) to
replace parts. Second, the writer should the vehicle contractor against a defined
specify to the level necessary to ensure that interfacea performance specification as far
the item will meet the users need and can be as the system contractor is concerned.
supported cost efficiently.
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Technical data packages (TDPs) play an If the Government expects to use the
additional role in a performance-based offerors system specifications in
solicitation because the purpose of a subsequent procurements, then the
performance-based solicitation should be not specification must be even more carefully
only to increase DoDs access to the existing constructed.
commercial industrial base but to acquire The solicitation should require offerors
products on a best value basis. to show how their product and their
Best value to the Government is a proposed approach satisfies the
combination of competitive pricing and requirements defined by the Government,
improved performance. Offerors should be with technical details submitted as
encouraged to propose improvements above substantiating data. This approach avoids
the minimum requirements and to propose inclusion of how to information in the
lower cost alternatives that meet the specification, and avoids identification of
performance criteria. As a part of this proprietary processes which could tend to
process, they must identify changes their drive the specification to sole source. The
proposed approach would make to the goal is for the selected contractors
current system if one exists. They must also specification to become the Governments
identify the impact of their approach on specification as well, but it must be suitable
logistic support, reliability, environmental for competitive reprocurement at a later
concerns, and similar issues. date.
Typical improvements might consist of The contractor will maintain and
deleting obsolete requirements or providing warrant the TDP. The Government may
direct operating benefit to the user. have the opportunity to exercise options to
Proposed changes will, of course, be subject acquire the TDP, if necessary, and/or to
to user review during the source selection procure spares and repair parts against the
process, to determine if they do actually same criteria under which the contractor is
enhance the intrinsic value. procuring or producing hardware.
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APPENDICES
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Appendix A
References
AMC-P 715-17 -- Guide for the Preparation and Use of Performance Specifications
Copies of federal and military specifications, standards, and handbooks are available from
the Department of Defense Single Stock Point, Subscription Service Desk, 700 Robbins Avenue,
Building 4D, Philadelphia, PA 19111-5094.
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APPENDIX B
2. Performance States what the item or system States how to achieve the
shall do in terms of capacity or performance.
function of operation. Upper
and/or lower performance
characteristics are stated as
requirements, not as goals or
best efforts.
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5. Interface Requirements Similar for both design and performance specifications. Form
and fit requirements are acceptable to ensure interoperability
and interchangeability.
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10. Operating Omits, except very general Specifies in detail how the
Characteristics descriptions in some cases. item shall work.
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2. First Article Very similar for both Very similar for both
performance and detail. performance and detail.
However, often greater need Possibly less need for first
for first article inspection article inspection.
because of greater likelihood of
innovative approaches.
Section 5 - Packaging
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Section 6
Data Requirements Often requires more data from In design approach, the
the contractor since the TDP Government has prepared
may be needed as baseline for much of the TDP.
reprocurements. Contractor
has prepared the TDP.
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