The path from concept to deployment of military capabilities remains fraught with challenges. A compelling new article in the Enterprise Technology Leadership Journal offers invaluable insights through the fictional journey of US Army Colonel Frank Kafka as he navigates the complex process of delivering a revolutionary logistics system called DUFFER.
“Delivering DUFFER: Crossing the Bureaucratic Battlefield,” authored by Andrew Biehn, Gene Kim, Luke Burton, Steve Holt, Jay Long, and Michael Snyder, provides a refreshingly readable account of defense acquisition challenges that resonates with anyone who has tried to drive innovation within large organizations.
The Challenge: Speed vs. Process
The paper begins by highlighting a critical tension in defense acquisition: while new military capabilities traditionally take around eleven years to develop and field, today’s strategic environment demands much faster delivery timelines. The Department of Defense has long recognized this challenge, with successive administrations launching various reform initiatives to accelerate capability delivery to warfighters.
Through Colonel Kafka’s story, inspired by the classic military text “The Defence of Duffer’s Drift,” readers experience the multifaceted challenges of bringing a new military capability to life. In a series of dreams (or nightmares), Kafka learns vital lessons about effective program management, carrying forward wisdom gained from previous failures.
The Journey Through Six Dreams
The narrative follows Kafka’s efforts to deliver DUFFER (Deployable Unit for Forward-Focused Expeditionary Resources), a compact logistics management system that would transform how the Army operates in expeditionary environments. Each “dream” represents a different phase of the acquisition journey, with Kafka encountering and eventually overcoming different obstacles. (Beware, spoilers follow.)
Dream 1: The Importance of User Engagement
In the first scenario, Kafka’s team develops what they believe is an innovative solution, only to discover during a demonstration that soldiers find it unusable. The lesson becomes painfully clear: without involving end-users from the beginning, even the most technically impressive systems will fail to meet actual battlefield needs.
Dream 2: Navigating Defense Funding
The second dream exposes the labyrinth of Pentagon funding processes. Despite having a working prototype and enthusiastic support from a four-star general, Kafka discovers that securing sustained funding requires much more than a good idea—it demands understanding complex budgeting processes and engaging resource sponsors early.
Dream 3: The Political Dimension
The third scenario reveals how quickly a promising program can be derailed by political forces. When DUFFER threatens an incumbent contractor’s interests, Kafka discovers the need for strategic engagement with Congress and other stakeholders to build a coalition of advocates who can protect the program.
Dream 4: The Technical Gatekeepers
The fourth dream highlights the critical role of technical warrant holders and cybersecurity experts. Initially viewing them as bureaucratic obstacles, Kafka learns that early collaboration with these experts is essential for avoiding last-minute crises that can derail deployment.
Dream 5: Testing in Real-World Conditions
Perhaps the most dramatic scenario unfolds when DUFFER is connected to a non-standard power source during deployment, resulting in catastrophic failure—including setting the command tent on fire and causing a regional power outage. This underscores the importance of testing systems under realistic field conditions rather than just in controlled laboratory environments.
Dream 6: Bringing It All Together
In the final dream, Kafka successfully applies all previous lessons, resulting in the successful deployment of DUFFER. By engaging users early, securing appropriate funding, building political support, collaborating with technical experts, and conducting realistic testing, the program delivers a capability that transforms military operations.
Key Lessons for Leaders
The paper distills valuable insights for leaders attempting to drive innovation within complex organizations:
- Work with stakeholders early: Engage operational users, technical warrant holders, and cybersecurity experts from day one of development. Transform potential opponents into partners through early collaboration.
- Navigate the funding landscape: Engage resource sponsors early, develop strategic funding plans that account for the full life cycle, and build relationships with key stakeholders who control resources.
- Turn stakeholders into champions: Help stakeholders understand the value your program brings to their mission and give them the tools to advocate effectively for your program.
- Embrace comprehensive testing: Start testing early, test in real-world conditions that match operational environments, and test frequently to catch issues before they become critical.
- Lead with strategic vision: Understand the broader strategic context of your program, balance technical excellence with political realities, and build relationships across the acquisition ecosystem.
Why This Paper Matters
What makes “Delivering DUFFER” particularly valuable is how it reframes the challenge of defense acquisition. Rather than portraying bureaucracy as the enemy, it reveals the acquisition process as an ecosystem of stakeholders, each with valid concerns and responsibilities. Success comes not from fighting the system but from understanding it and working effectively within it.
The paper has already garnered praise from high-ranking military officials. Admiral John Richardson, former Chief of Naval Operations, described it as “remarkable” for its ability to describe “all the elements of success in the current acquisition system without being sarcastic or cynical.” Rear Admiral Seiko Okano stated emphatically that “The Navy needs this book, and it needs it now. Make it mandatory reading—our future may depend on it.”
For leaders in any complex organization—not just defense—the lessons are broadly applicable. The challenges of navigating stakeholder interests, securing funding, building political support, addressing technical concerns, and testing under realistic conditions exist in virtually all large enterprises attempting to innovate.
A New Framework for Innovation Leadership
Beyond the specific lessons, “Delivering DUFFER” offers a compelling framework for thinking about leadership in complex organizations. It suggests that successful innovation leaders need more than just technical expertise or program management skills. They must be able to navigate organizational dynamics, build effective coalitions, and maintain unwavering focus on end-user needs.
The authors draw an apt comparison to Operation Warp Speed, demonstrating that rapid capability delivery is possible when we effectively marshal the full resources of an enterprise. Colonel Kafka’s story provides a roadmap for achieving similar success through relationship building, early stakeholder engagement, and maintaining focus on end-user needs.
As modern organizations face unprecedented challenges—rapid technological change, evolving threats, and increasing system complexity—the fundamental lessons from Colonel Kafka’s experience remain relevant: success requires building inclusive teams, navigating complex funding landscapes, mastering strategic communication, embracing comprehensive testing, and leading with strategic vision.
For anyone responsible for delivering new capabilities in complex organizations, “Delivering DUFFER” offers a refreshingly engaging and insightful roadmap to success. It’s well worth reading the complete paper, available in the Spring 2025 issue of the Enterprise Technology Leadership Journal.
– About The Authors
Leah Brown
Managing Editor at IT Revolution working on publishing books and guidance papers for the modern business leader. I also oversee the production of the IT Revolution blog, combining the best of responsible, human-centered content with the assistance of AI tools.
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