[bane]

The fact that this had to be produced, reviewed (probably by lawyers) and cleared for open publication is a sign that the DoD has recognized that it's wasting a lot of time and money paying teams to make things that help the DoD...and not getting it -- despite agile's promise of delivering working software to users ever iteration.

The document contains and is a symptom, the root cause analysis of why this document exists should be next.

Reading between the lines, there's lots of complaining here about teams working with people who aren't users and having no mechanism to reach users. I suspect that there is a very large "cottage" industry of companies that basically sit between teams and end-users and act as "intermediaries" and basically just siphon tax dollars into their quarterly revenue reporting while breaking the connection between teams and users, guaranteeing successful software is never delivered, and making sure that software efforts essentially go on forever or are restarts of previously failed efforts.