Updated February 4, 2020
Defense Primer: Under Secretary of Defense for Research and
Engineering
Advances in science and technology have long played a
undersea warfare, hypersonics, and robotics, among
critical role in ensuring the technological preeminence of
others.
the United States military. For this reason, the Department
of Defense (DOD) is the largest funder of federal research
Roles and Responsibilities of the USD
and development. The Under Secretary of Defense for
(R&E)
Research and Engineering (USD (R&E)) is a civilian
The powers and duties of the USD (R&E) include:
official reporting directly to the Secretary of Defense. The
USD (R&E) serves as the principal advisor to the Secretary
serving as the chief technology officer of DOD with the
of Defense for DOD research, engineering, and technology
mission of advancing technology and innovation for the
development activities and programs.
military services and DOD;
establishing policies on, and supervising all defense
Over the last several years, policymakers and others have
research and engineering, technology development,
expressed concern that the long-held technological edge of
technology transition, appropriate prototyping activities,
the U.S. military is eroding due, in part, to the proliferation
experimentation, and developmental testing activities
of technologies outside the defense sector, organizational
and programs, and unifying defense research and
and cultural barriers to DOD effectively incorporating and
engineering efforts across DOD; and
exploiting commercial innovations, and insufficient
serving as the principal advisor to the Secretary of
engagement with leading-edge companies that have not
Defense on all research, engineering, and technology
historically been a part of the DOD innovation system. The
development activities and programs in DOD.
establishment of the USD (R&E) as the fourth highest
ranking DOD official—behind the Secretary, Deputy
Furthermore, in the conference report (H.Rept. 114-840) for
Secretary, and Chief Management Officer—was intended to
the FY2017 NDAA, the conferees stated their expectation
promote faster innovation and to reduce risk-intolerance in
that the USD (R&E) “would take risks, press the
the pursuit of new technologies.
technology envelope, test and experiment, and have the
latitude to fail, as appropriate.”
Origin of the USD (R&E) Position
On December 11, 2017, President Trump nominated
Leadership for DOD research, engineering, and technology
Michael D. Griffin to be the USD (R&E). His nomination
development activities and functions within the Office of
was confirmed by the Senate on February 15, 2018.
the Secretary of Defense (OSD) has been realigned multiple
times over the course of DOD’s history. For example, there
Office of the USD (R&E)
was a USD (R&E) from 1977 to 1986. Reestablishment of
As required by P.L. 114-328, DOD submitted a report to
the position of the USD (R&E) in 2016 through the
Congress proposing an organizational and management
National Defense Authorization Act for Fiscal Year 2017
structure for the office of the USD (R&E) (OUSD (R&E)).
(FY2017 NDAA, P.L. 114-328) represents the most recent
According to the 2017 report, the OUSD (R&E) is to be
realignment.
organized around three major components:
Specifically, P.L. 114-328 eliminated the position of the
A Strategic Intelligence Analysis Cell focused on
Under Secretary of Defense for Acquisition, Technology,
understanding the capabilities and vulnerabilities of
and Logistics (USD (AT&L)) and established the positions
potential adversaries, assessing U.S. capabilities,
of USD (R&E), the Under Secretary of Defense for
tracking global technology trends, assessing emerging
Acquisition and Sustainment (USD (A&S)), and chief
threats, and identifying potential opportunities that
management officer effective February 1, 2018.
warrant action and merit investment.
In reestablishing the position of USD (R&E) the Senate
An Assistant Secretary of Defense (ASD) for Research
Armed Services Committee stated (S.Rept. 114-255):
and Technology responsible for setting the strategic
technical direction and investment strategy for DOD to
The committee expects that just as previous USD
ensure technical dominance on the battlefield,
(R&E) incumbents led the so-called “Second
integrating DOD’s laboratory infrastructure, and
Offset” strategy, which successfully enabled the
providing stewardship of the technical community that
United States to leap ahead of the Soviet Union in
conducts defense research.
terms of military technology, the new USD (R&E)
An ASD for Advanced Capabilities responsible for
would be tasked with driving the key technologies
prototyping and experimentation that is designed to
that must encompass what defense leaders are now
increase understanding of a technology and its
calling a “Third Offset” strategy: cyber and space
capabilities, drive down technical risk, and incorporate
capabilities, unmanned systems, directed energy,
warfighter feedback to ensure concepts that transition to
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Defense Primer: Under Secretary of Defense for Research and Engineering
acquisition address the needed capability, and are timely
In the conference report (H.Rept. 114-840) for the FY2017
and affordable.
NDAA, the conferees acknowledged the potential
challenges that exist in separating the roles and
On July 13, 2018, the Deputy Secretary of Defense signed a
responsibilities of the USD (AT&L) into the positions of a
memorandum approving the organizational structure, roles,
USD (R&E) and a USD (A&S). However, the conference
and responsibilities of the OUSD (R&E). The three major
report asserts that elevating the missions of advancing
components described in the 2017 report to Congress are
technology and innovation within DOD, fostering distinct
reflected in the final structure of OUSD (R&E) except the
technology and acquisition cultures to better deliver
assistant secretaries are now directors (and will not need
superior capabilities, and providing greater oversight and
Senate confirmation) and the Defense Advanced Research
management of DOD components outside the military
Projects Agency (DARPA), Strategic Capabilities Office
services would best be addressed by the creation of two
(SCO) and Defense Innovation Unit (DIU) report directly to
undersecretaries. Furthermore, the conferees indicated that
the USD (R&E) through a new Deputy Under Secretary of
any potential barriers or gaps could “be mitigated through
Defense for Research and Engineering (DUSD (R&E)). In
effective leadership and management.”
2019, the Space Development Agency (SDA) was created
under the OUSD (R&E) with the goal of accelerating the
In an effort to bridge gaps between the two offices, the July
development and fielding of new military space
13 memorandum requires the USD (R&E) to participate in
capabilities. Additionally, a director for modernization was
Milestone Decisions through the lifecycle of a Major
added to the OUSD (R&E) and assigned the responsibility
Defense Acquisition Program, and advise the USD (A&S)
of overseeing research and technical areas deemed critical
as appropriate, including serving on the Defense
to maintaining the advantage of the U.S. military (e.g.,
Acquisition Board for certain programs.
quantum science, space, and hypersonics). Each of the
priority areas is led by an assistant or technical director.
Relevant Statutes
Assistant directors report to the USD (R&E) through the
Title 10, U.S. Code, Chapter 4—Office of the Secretary of
director for modernization while technical directors report
Defense
directly to the USD (R&E) and DUSD (R&E).
CRS Products
USD (R&E) and USD (A&S) Relationship
CRS In Focus IF10553, Defense Primer: RDT&E.
CRS Report R45403, The Global Research and Development
A wide range of observers see a close and cooperative
Landscape and Implications for the Department of Defense.
relationship between the USD (R&E) and the USD (A&S)
CRS Report R45068, Acquisition Reform in the FY2016-FY2018
as critical for the efficient and effective delivery of
National Defense Authorization Acts (NDAAs).
advanced technologies to the warfighter, especially at the
fast pace many expect is needed to maintain the U.S.
Other Resources
technological lead over potential adversaries.
Wil iam D. O'Neil and Gene H. Porter, What to Buy? The Role of
Director of Defense Research and Engineering (DDR&E) Lessons
Some have expressed concerns that dividing the roles and
from the 1970s, Institute for Defense Analyses, IDA Paper P-
responsibilities of the USD (AT&L) into an USD (R&E)
4675, Alexandria, VA, January 2011.
and an USD (A&S) will exacerbate the valley of death (i.e.,
the barriers and challenges that exist in bringing a new
technology from the research laboratory to full scale
deployment in the armed forces).
Figure 1. Organizational Chart for Office of USD (R&E)
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; and https://www.cto.mil/leadership/, accessed on January 30, 2020.
IF10834
Marcy E. Gallo, Analyst in Science and Technology Policy
https://crsreports.congress.gov
Defense Primer: Under Secretary of Defense for Research and Engineering
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