Updated November 14, 2018
Defense Primer: Under Secretary of Defense for Research and
Engineering
Advances in science and technology have long played a
calling a “Third Offset” strategy: cyber and space
critical role in ensuring the technological preeminence of
capabilities, unmanned systems, directed energy,
the United States military. For this reason, the Department
undersea warfare, hypersonics, and robotics, among
of Defense (DOD) is the largest funder of federal research
others.
and development. The Under Secretary of Defense for
Research and Engineering (USD (R&E)) is a civilian
Roles and Responsibilities of the USD
official reporting directly to the Secretary of Defense. The
(R&E)
USD (R&E) serves as the principal advisor to the Secretary
The FY2017 NDAA outlines the powers and duties of the
of Defense for DOD research, engineering, and technology
USD (R&E) to include:
development activities and programs.
serving as the chief technology officer of DOD with the
Over the last several years, policymakers and others have
mission of advancing technology and innovation for the
expressed concern that the long-held technological edge of
military services and DOD;
the U.S. military is eroding due, in part, to the proliferation
establishing policies on, and supervising and
of technologies outside the defense sector, organizational
coordinating DOD’s research and engineering,
and cultural barriers to DOD effectively incorporating and
technology development, technology transition,
exploiting commercial innovations, and insufficient
prototyping, experimentation, and developmental testing
engagement with leading-edge companies that have not
activities and programs, including through the allocation
historically been a part of the DOD innovation system. The
of resources for defense research and engineering; and
establishment of the USD (R&E) as the fourth highest
ranking DOD official—behind the Secretary, Deputy
serving as the principal advisor to the Secretary of
Secretary, and Chief Management Officer—was intended to
Defense on all research, engineering, and technology
promote faster innovation and to reduce risk-intolerance in
development activities and programs in DOD.
the pursuit of new technologies.
Furthermore, in the conference report (H.Rept. 114-840) for
Origin of the USD (R&E) Position
the FY2017 NDAA, the conferees stated their expectation
Leadership for DOD research, engineering, and technology
that the USD (R&E) “would take risks, press the
development activities and functions within the Office of
technology envelope, test and experiment, and have the
the Secretary of Defense (OSD) has been realigned multiple
latitude to fail, as appropriate.”
times over the course of DOD’s history. For example, there
was a USD (R&E) from 1977 to 1986. Reestablishment of
On December 11, 2017, President Trump nominated
the position of the USD (R&E) in 2016 through the
Michael D. Griffin to be the USD (R&E). His nomination
National Defense Authorization Act for Fiscal Year 2017
was confirmed by the Senate on February 15, 2018.
(FY2017 NDAA, P.L. 114-328) represents the most recent
realignment.
Office of the USD (R&E)
As required by P.L. 114-328, DOD submitted a report to
Specifically, P.L. 114-328 eliminated the position of the
Congress proposing an organizational and management
Under Secretary of Defense for Acquisition, Technology,
structure for the office of the USD (R&E) (OUSD (R&E)).
and Logistics (USD (AT&L)) and established the positions
According to the 2017 report, the OUSD (R&E) is to be
of USD (R&E), the Under Secretary of Defense for
organized around three major components:
Acquisition and Sustainment (USD (A&S)), and chief
management officer effective February 1, 2018.
A Strategic Intelligence Analysis Cell focused on
understanding the capabilities and vulnerabilities of
In reestablishing the position of USD (R&E) the Senate
potential adversaries, assessing U.S. capabilities,
Armed Services Committee stated (S.Rept. 114-255):
tracking global technology trends, assessing emerging
threats, and identifying potential opportunities that
The committee expects that just as previous USD
warrant action and merit investment.
(R&E) incumbents led the so-called “Second
An Assistant Secretary of Defense (ASD) for Research
Offset” strategy, which successfully enabled the
and Technology responsible for setting the strategic
United States to leap ahead of the Soviet Union in
technical direction and investment strategy for DOD to
terms of military technology, the new USD (R&E)
ensure technical dominance on the battlefield,
would be tasked with driving the key technologies
integrating DOD’s laboratory infrastructure, and
that must encompass what defense leaders are now
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Defense Primer: Under Secretary of Defense for Research and Engineering
providing stewardship of the technical community that
as critical for the efficient and effective delivery of
conducts defense research.
advanced technologies to the warfighter, especially at the
fast pace many expect is needed to maintain the U.S.
An ASD for Advanced Capabilities responsible for
technological lead over potential adversaries.
prototyping and experimentation that is designed to
increase understanding of a technology and its
Some have expressed concerns that dividing the roles and
capabilities, drive down technical risk, and incorporate
responsibilities of the USD (AT&L) into an USD (R&E)
warfighter feedback to ensure concepts that transition to
and an USD (A&S) will exacerbate the valley of death (i.e.,
acquisition address the needed capability, and are timely
the barriers and challenges that exist in bringing a new
and affordable.
technology from the research laboratory to full scale
deployment in the armed forces).
On July 13, 2018, the Deputy Secretary of Defense signed a
memorandum approving the organizational structure, roles,
In the conference report (H.Rept. 114-840) for the FY2017
and responsibilities of the OUSD (R&E). The three major
NDAA, the conferees acknowledged the potential
components described in the 2017 report to Congress are
challenges that exist in separating the roles and
reflected in the final OUSD (R&E) except the assistant
responsibilities of the USD (AT&L) into the positions of a
secretaries are now directors (and will not need Senate
USD (R&E) and a USD (A&S). However, the conference
confirmation) and the Defense Advanced Research Projects
report asserts that elevating the missions of advancing
Agency (DARPA), Strategic Capabilities Office (SCO) and
technology and innovation within DOD, fostering distinct
Defense Innovation Unit-Experimental (DIUx) report
technology and acquisition cultures to better deliver
directly to the USD (R&E) through a new Deputy Under
superior capabilities, and providing greater oversight and
Secretary for Research and Engineering. The OUSD (R&E)
management of DOD components outside the military
also includes nine assistant directors focused on research
services would best be addressed by the creation of two
and technical areas deemed critical to maintaining the
undersecretaries. Furthermore, the conferees indicated that
advantage of the U.S. military (e.g., artificial intelligence,
any potential barriers or gaps could “be mitigated through
quantum science, space, and hypersonics).
effective leadership and management.”
Figure 1. Organizational Chart for Office of USD
(R&E)
In an effort to bridge gaps between the two offices, the July
13 memorandum requires the USD (R&E) to participate in
Milestone Decisions through the lifecycle of a Major
Defense Acquisition Program, and advise the USD (A&S)
as appropriate, including serving on the Defense
Acquisition Board for certain programs.
Relevant Statutes
Title 10, U.S. Code, Chapter 4—Office of the Secretary of
Defense
CRS Products
CRS In Focus IF10553, Defense Primer: RDT&E.
CRS Report R45403, The Global Research and Development
Landscape and Implications for the Department of Defense.
CRS Report R45068, Acquisition Reform in the FY2016-FY2018
National Defense Authorization Acts (NDAAs).
Other Resources
William D. O'Neil and Gene H. Porter, What to Buy? The Role
of Director of Defense Research and Engineering (DDR&E) Lessons
from the 1970s, Institute for Defense Analyses, IDA Paper P-
4675, Alexandria, VA, January 2011.
Source: Adapted from Attachment 1, Department of Defense,
Memorandum from Deputy Secretary of Defense on Establishment of the
Office of USD (R&E) and the Office of the USD (A&S), July 13, 2018.
Marcy E. Gallo, Analyst in Science and Technology Policy
Moshe Schwartz, Specialist in Defense Acquisition
According to DOD officials, it will take until 2019 to fully
implement the new organizational and management
IF10834
structure of the OUSD (R&E).
USD (R&E) and USD (A&S) Relationship
A wide range of observers see a close and cooperative
relationship between the USD (R&E) and the USD (A&S)
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Defense Primer: Under Secretary of Defense for Research and Engineering
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