The Synchronized Predeployment and Operational Tracker (SPOT) program acts as the Joint Enterprise system for tracking contractors who deploy with the military. It is the only system that supports the DoDI 3020.41 requirements to relate contract-level information with individual contingency contractor employee information. The system is populated by company personnel via secure Internet access and updated with current locations as individuals move throughout the operational Area of Responsibility (AOR). Government agencies use SPOT to analyze available contract services and to support their mission needs, Defense Contractors use SPOT to process and track the individuals who deploy to provide required capabilities and Combatant Commanders use SPOT reports to maintain overall visibility of contractors within their AOR and integrate contractor support into their logistics and operational plans. 

Reliance on military contractors dates back many centuries, to the Romans who paid for military service.  In the U.S., some military functions have been hired out since at least the Civil War.  Previously, however, the number of contractors was always small.  After World War II, the numbers of contractors started to grow.  Currently, there is an unprecedented deployment of contractors on the battlefield, as the volume and percentages have increased.  During Operation Desert Storm, 9,200 contractors were deployed.  By comparison, more than 280,000 contractors have been deployed to Iraq/Afghanistan, which far exceeds the 160,000 total number of deployed members of the Armed Forces. 

The unprecedented expansion of contractors on the battlefield, required the military to develop new methods for tracking and utilization. There is no greater power than information, so knowledge about contractor personnel is of primary importance.  Knowing who the contractors are, where they are, what they are doing, and the services they are consuming  is extremely critical. Thus it has become vital for the Department of Defense (DoD) to track contractors in theater, especially since these contractors perform all kinds of services in support of our military personnel  in numbers larger than the actual military.  

Developed and implemented through a unique partnership between the Office of the Secretary of Defense: Acquisitions, Technology and Logistics (OSD AT&L); the Business Transformation Agency (BTA) and Army Material Command (AMC), SPOTs mandate is to create a single, integrated database that provides visibility of contractors on the battlefield.   With SPOT in place, DoD is able to prioritize current resources and determine the new ones that are needed, while concurrently reducing duplicative costs. 

Without such technology, it would be an impossible task to keep track of hundreds of thousands of contractors representing hundreds of billions of dollars in government funded services.  In the past, no single organization was charged with the mission of developing the capability to track all contractors on the battlefield.  In order to fill this gap,  the SPOT program was established to provide this composite contractor information.   

In response to a 2005 Congressional mandate to establish such a database, SPOT was designated as the solution in January 2007.  In just two years, SPOT has successfully fielded an operational, enterprise capability.  SPOT currently provides unprecedented visibility into contingency contracts accounting for 10,439 companies, and 3,783 active Contracts. Since its initial roll-out SPOT has been used to generate over 180,909 LOAs on 7,149 contracts.  SPOT currently provides full operational and sustainment support for more than 8,530 end users, including contracting officers, military commanders, and Members of Congress.

Under pressure from Congress to accurately account for contractors on the battlefield, DoD needed to rapidly implement a solution that could account for the increased number of contractor personnel who were being deployed to support military operations in Iraq and Afghanistan.  Use of information technology was the only viable approach for providing an accurate, near real-time census of contingency contractors. 

Developed with industy-leading COTS products (Microsoft .net, SQL Server and Adobe Livecyle), SPOT created an automated workflow capability that enables companies to request and the government to approve and generate uniquely bar-coded letters of authorization (LOAs) that are digitally signed by designated contractor officers.  SPOT utilizes proven concepts previously implemented by the banking (ATM) and package delivery (FedEx/UPS) industries.  Banking institutions developed federated authentication systems  and delivery services mastered tracking technologies that have been incorporated into the SPOT.  This repurposing to military usage is a clever adaptation of proven architectures and methodologies.  

SPOT is constructed using service-oriented architecture (SOA), depicted in appendix 2, that promotes system-to-system integration to access authoritative data. In many cases, information on individual contractors was stored in disparate databases  in electronic Human Resources (HR) systems for contractor companies, in credentialing systems for military Common Access Cards (CAC), and in federal contract writing systems.  Integrating and leveraging information from these authoritative data sources into one central database reduced workload associated with re-keying data and significantly improved the quality of that data.  Once captured, that information is easily accessible through a secure, web-based application.  In addition to personally identifying information, specific areas of contractor expertise are also recorded so that commanders can understand their capabilities and best utilize available assets. This architecture significantly decreases manual data entry, thus reducing the potential for errors while also lowering time and expense. Interfaces with previously fielded programs enables continuous movement tracking for contractors in theater.

Letters of Authorization (LOAs) are issued by authority of a warranted contracting officer (KO) to each contractor deployed onto the battlefield.    Prior to SPOT, there were 192 distinct formats and processes for generating an LOA.  SPOT automated the business process for authorizing contractor deployments and provided the framework for consolidating all approvals into one approved form.   Following deployment into theater, LOAs are used to track the contractors movement by scanning bar codes at terminals located in many of the places that contractors go  dining facilities, hospitals and airfields.  In this manner, identifying information is captured in SPOT every time a contractor flies on a military plane, steps foot on a base, eats a meal in a government dining facility, obtains government issued equipment or receives medical treatment. By integrating with movement capture systems such as the JAMMS and DBIDS which can scan CACs, passports, LOAs, and other credentials  SPOT is able to track contractor movement across the theater. Data provided by JAMMS and other movement tracking systems provides commanders the ability to query if a contractor is where he or she is supposed to be.   Moving forward, SPOT is working with other movement capture systems, such as the Defense Biometrics Identification System DBIDS, to provide an aggregated view of movements.  

Yes

Yes

SPOT provides the following key benefits:   (1) Providing a standard reporting methodology with improved accuracy, timeliness, validity and integrity of data for deployed contractors to the Combatant Commander in contingency operations; (2) Affording Combatant Commanders a closed loop process for end-to-end visibility of deployed contractors; (3)  Eliminating manual data entry and costs associated with review, correction, and reworking errors;  (4) Establishing a secure and reliable automated Letter of Authorization that enhances security, increases Government efficiency, reduces identity fraud, and protects personal privacy; (5) Improving operational efficiency in contingency operations through use of standardized system, data, and processes; and (6) Providing reliable and accurate planning for contractor support to the warfighter. 

Cost issues take on even greater importance in these financially challenging times. SPOT also creates the mechanism for authorizing use of government services. This is accomplished by indicating which services are authorized on the LOA including military air, government furnished equipment and weapons authorization.  By tracking contractor LOAs, DoD can now determine what government services were accessed, and which of these utilized services were not part of a contract.  Costs for such services can then be reconciled and reimbursed at the end of the contract.  These services entail: 1) use of medical services when company-provided insurance should provide reimbursement, 2) meals that are not contractually authorized, 3) government-furnished transportation, and 4) government-furnished housing.  SPOT data has also been used to supports investigations and auditing of government-furnished equipment and services.

The greatest return on investment (ROI) is achieved when contractors consume only the services that are authorized in their contracts.  SPOT provides a vehicle for eliminating many lost days wasted in delayed transit, reducing in-processing time, and maximizing usage of contractor specialties. The resulting information has been successfully used to increase cost reimbursement and dramatically reducing the time needed for billing use of military airlift from years to weeks. 

Mission and force planning is a vital aspect to any successful military operation.  Combatant Commanders (COCOM) have access to SPOT data, enabling them to better manage the contractors, reassign them if expertise is needed elsewhere, and minimize delays and down-time.  By combining SPOT data with that of other systems providing a view of military and civilian personnel, commanders can get a full-view of all available forces. With the click of a mouse, commanders can drill down to information about contractor capabilities, job skills and capacity.  

From a safety standpoint, tracking movements provides commanders the ability to accurately depict the location of all contractors; from a legal perspective, it shows that contractors were where they say they were; and with regard to health issues like Gulf War Syndrome, it can be used to provide evidence of exposure.      In the near future, SPOT will be used to replace the existing manual census by providing an accurate, near real-time accounting of all contractors in military theater.

The SPOT program has helped those it was designed to help and more.  SPOT's mission provides benefits to a broad spectrum of stakeholders that are identified in appendix 1.  At the enterprise level, SPOT provides Congress the reporting capability to accurately account for all contingency contractors in theater.  Prior to SPOT's implementation, there were a number of estimates, but no single authoritative source for contractor information. Implementation of SPOT is allowing DoD to streamline resources, minimize waste, and maximize contractors impact on achieving operational goals.
  
From the Multi-National Corps  Iraq (MNC-I) commanders perspective, "SPOT provides visibility of contractor locations and capabilities. We see this as value added all around," says Major Angie Holbrook, Chief of Personnel Operations, MNC-I, C1, Baghdad.  "This will help us better forecast resources and account for who is in theater.  Our structure for HR assets to perform this function (personnel accountability) is reducing so it is imperative we develop a more efficient system of accounting with standardized processes to reduce the number of HR systems we use to collect this data.  SPOT allows us to capture data on all personnel entering and traversing the theater and if we can then feed that data into the systems we currently use, specifically our database of record-DTAS, then SPOT really will make accounting for personnel in theater much more efficient and accurate.a single system, used by the entire theater, to capture this data, is the most promising thing we have heard in a while in regards to
personnel accountability."

Operational users extol the benefits of the SPOT program. "If this helps us get our arms around who is coming and going, then we are all for it. Efficiently tracking people will make our databases more accurate"; CPT Joaquin Meno, Commander, D Detachment, 38th PSB, Tikrit, 2nd OIF Rotation.  "This is a great start and has been needed for a long time; standardizing is key to getting a handle on people," says Sergeant Bolboaca-Negru, NCOIC r5 Team, D DET, 38th PSB, Tikrit, 3rd OIF Rotation.  "It is no more work for us and we get better data;" SPC Holden, 813th Replacement Company, 22nd PSB, Balad.

Whether for crisis, contingency, conflict, war, or humanitarian effort, skill sets of contractors employed by the U.S. military are now readily identifiable and easily directed to fill needs in the Middle East.  This capability will soon be expanded worldwide (by 2011).  It has been apparent for some time that contractor resources exist whose maximum usage is not being realized.  This waste, plus the redundancies that occur, caused the military a loss of efficiency.  SPOT has addressed the issue of contractor visibility, to correct the problem and benefit the Armed Services.  

Other parts of DoD, additional COCOMs outside Iraq and Afghanistan, and some federal agencies have either adopted the system to support their needs and business processes or are making plans to expand its use. The Department of State (DOS) and U.S. Agency for International Development (USAID) are two such examples.  SPOTs success has pointed out the value of understanding what assets exist, and thus assists the programs users in prioritizing current resources and subsequently minimizing the need for obtaining new ones.  

SPOT is the first and only single integrated database containing authoritative data about contractors on the battlefield.  With legislated mandates from Congress and direction from the senior military commander in U.S. Central Command (CENTCOM), SPOT represents the first time that data has been integrated from contracting, movement tracking, and company human resources systems  arenas that were previously managed as separate functional domains. SPOT provides unprecedented visibility into contractor movements and capabilities, accounting for contractors from award through deployment, redeployment, and finally closeout.  Prior to SPOTs implementation, there were many different systems that contained data about one phase of the contractors lifecycle, but there was no single repository that could provide an integrated view.

SPOT accomplishes its success by incorporating three valuable tenets, or guiding principals, in its program design: 

1) Using existing capabilities rather than creating new ones.  SPOT leveraged other government investments and assets to solve a current problem.  Rather than developing and fielding its own proprietary, unique capabilities, SPOT identified proven systems that were funded by other organizations within DoD and, using service-oriented architecture, integrated the data.  In essence, DoD, with its development and implementation of SPOT, has created systems around systems.  SPOT also developed custom-built software that integrates with existing systems, data, and technology.  By repackaging existing assets, SPOT repurposes them and thus expands the concept of value-added services, which can be provided to additional stakeholders and systems.

2) Leveraging the financial systems ATM model.  The architecture of SPOT is based on a proven, scalable, high-performing ATM model already implemented by the banking industry system.  This model meets important criteria  enrollment at point-of-service, portability of credentials, and universal access.  

3) Providing universal tracking capability.  SPOT achieves ubiquitous visibility, and the ability to track people (contractors), just as packages are tracked through FedEx and UPS.  This tracking capability is dependent upon continuous receipt of current, accurate, relevant data that provides commanders with a near real-time understanding of contractors on the battlefield.  

From a reporting perspective, SPOT can generate a wide variety of supporting information for various stakeholders.  JAMMS scans lead to high-level counts, mission planning support, and arrival/departure information that facilitates smooth operation of military air facilities.

The SPOT program serves as an exceptional model for the military, and for other government agencies, about how to rapidly deploy enterprise systems capability.  SPOTs innovation is based on repurposing of existing assets to save money and accelerate implementation time. SPOT leverages existing business processes, fielded equipment and deployed personnel to provide a federated tracking capability for tracking contractors. SPOT serves as the model for accumulating information in a way that enables better planning, support, and leveraging of contractor capabilities will certainly be adapted throughout the government where appropriate.  This approach begins building a larger business case for federated information sharing across identity management, security, personnel, biometrics, transportation, and operations domains.

The greatest challenge to the SPOT program was certainly one of culture.  By cutting across traditional silos, the success of SPOT was extraordinarily dependent upon collaboration and support.  Asking people to give up control is generally problematic, and this situation was no exception.  However, such natural reticence was overcome by a concerted effort to convince all stakeholders to accept the win-win outcome that would, and did, ensue.  Through detailed education  showing all parties the individual benefits they would obtain, as well as those that would accrue to the government support for SPOT was achieved.  Having a Congressional mandate certainly helped force the issue, but stakeholders are now more than supportive.

Key technology was identified, aligned, and adapted to business processes so as to create the least disruption possible.  From a contracting company perspective, SPOTs service-oriented architecture allows each company to directly link system-to-system.  By thus reducing the manual data entry required, the custom-built software of the SPOT system is decidedly user-friendly; this helps minimize time and expense, while increasing quality.  It also helps achieve buy-in by those involved with the program.

Implementation was slow to occur prior to CENTCOMs Fragmentation Order (FRAGO) of September 1, 2008.  The relevant 2008 FRAGO (a form of operation order) directed that all movement within theater was halted for contractors without an LOA from SPOT.  Thus a spike in usage ensued, for without such a SPOT LOA, contractors could not get on flights or access military bases.  

Buy-in and participation by all contract personnel was necessary to make the system work properly.  The larger numbers of participants achieved through the FRAGO mandate was a desired result.  However, the spike itself represented an obstacle, for Help Desk services were immediately overtaxed.  SPOT had to adapt and evolve quickly to accommodate the huge spike in usage, but it was able to do so.  To handle increased demand, the program expanded Help Desk coverage 24/7 and performed maintenance to help scale up from producing hundreds of LOAs per week to producing more than twelve thousand per week during the registration peak after the FRAGO. 

Another obstacle was the limited amount of resources from a funding standpoint.  By developing new functionality in pre-existing resources, much was accomplished within these financial constraints.

Change, even positive change, inherently encounters resistance.  In this instance, the SPOT program ran into obstacles from HR and logistics managers who previously controlled certain information from both within the government and from within the private sectors large multinational corporations, which generally provide the military contractors.  The challenge to SPOTs advocates was to overcome protectionism from these competing programs.

The obstacles of territoriality were overcome by educating managers from many participating factions about specific benefits that would derive from such a unique program capability as that provided by SPOT.  By focusing attention on the benefits to taxpayers, the increased effectiveness of military operations, and the Congressional mandate, the programs drivers were able to leverage contracting Community of Interests (COI) to agree with, and ultimately to support, SPOTs objectives.

Exceeded

Mr. Gary Motsek, Assistant Deputy Under Secretary Of Defense, Office Of Program Support  who is responsible for overseeing contractors, stated, "SPOT was developed and deployed in approximately two years, far faster than comparable DoD enterprise systems, which generally take five years."  SPOT is a successful program that is providing military leaders with:  1) full accountability of all contracted assets with auditing capability, 2) clear visibility of capabilities within each area of responsibility (AOR), and 3) awareness of the contractor footprint in each AOR for contingency and force protection planning.

SPOT exceeded expectations by implementing additional capabilities to recover costs, ensure appropriate use of government services including medical, dining and military airlift.  SPOT users at U.S. Central Command (CENTCOM) have embraced the system, so much so, that the SPOT program will expand to provide a global view of all contractors across DoD by 2011.  Thus what started in Iraq/Afghanistan/Middle East will soon be a worldwide capability.  Expansion will enable U.S. Northern Command (NORTHCOM) to support Homeland Security in responding to natural disasters within the U.S., supporting Americans during national disasters.  Expansion will also provide other COCOMs throughout Europe, Asia, Africa, South America, and the Pacific with support, as needed.

Emerging demand of SPOT is growing.  The repurposing of information to meet Veterans Administration (VA) need for a certified history of deployments and locations will facilitate many issues such as those related to illness and benefits.  The Department of State (DOS) is currently mandating use of the SPOT program for its contractors; of particular relevance will be assertion of contractor support for the U.S. government and the contractors subsequent preferential emigration status through the Kennedy Repatriation Act (Section 1248). The VA, DOS, and potentially others are attracted to SPOTs cost reduction and management capabilities.

The National Defense establishment has designated SPOT as the single authoritative repository for contingency contractor deployments.  While Congressional policy forced SPOTs development and implementation, its success with the targeted audience is driving its expansion.  Ability to track, communicate, deploy, move, and anticipate needs of contractors are such valuable data that the embrace of SPOT is overwhelmingly positive.

In August 2008, U.S. Central Command issued a Framentation Order (FRAGO) that mandated use of SPOT to generate LOAs as the only means for allowing contractors to enter or exit the battlefield . Following issuance of the FRAGO, all contractors supporting DoD, DOS, and U.S. AID transitioned from infrequent use of SPOT to a continuous usage model, thus avoiding interruptions in deployment of their staff.  The contracting community to rapidly embraced shift from their inherently manual, labor intensive approach to a fully automated process.   Within days, the number of approved LOAs surged four-fold and within a month, use of SPOT increased by a factor of fifteen.

The fact that SPOT was up and running, and providing value within two years, is important.  The vision is to expand use of SPOT beyond tracking contingency contractors to providing a global footprint that supports all contracts through worldwide tracking by 2011. During the last several months, Combatant Commanders in Europe, Africa and the Pacific have seen the power that SPOT provides CENTCOM.  Plans are being formulated to expand the SPOT capability into these other theaters of operations within the next 12 months.  This will enable our military planners the ability to plan for, and deploy, specialist contractors into new theaters of operation quickly and efficiently.  Other organizations such as the U.S. Agency for International Development (USAID) and DOS are embracing SPOT so that they can leverage a proven contractor tracking capability to support their missions.