A Concept of Operations is a user-oriented document the describes system characteristics for a proposed systems from the User's perspective. The CONOPs also describes the user organization, mission, and objectives form the integrated systems point of view and is used to communicates overall qualitative and quantitative characteristics to the stakeholders.

1. How to Build a Credible
Concept of Operations and
Use It to Derive
Capabilities and Features
Thomas J. Coonce
Glen B. Alleman

2. What is a Concept of Operations?
2
A Concept of Operations (CONOPS) is a user-oriented
document that "describes systems characteristics for a
proposed system from a user's perspective. A CONOPS
also describes the user organization, mission, and
objectives from an integrated systems point of view and
is used to communicate overall quantitative and
qualitative system characteristics to stakeholders.”
IEEE Computer Society, March 19, 1998, IEEE Guide for Information Technology—System Definition—Concept of Operations
(ConOps) Document (IEEE Std 1362-1998).

3. What is a Concept of Operations?
3
A CONOPS "describes the proposed system in terms of
the user needs it will fulfill, its relationship to existing
systems or procedures, and the ways it will be used.
CONOPS can be tailored for many purposes, for
example, to obtain consensus among the acquirer,
developers, supporters, and user agencies on the
operational concept of a proposed system. Additionally,
a CONOPS may focus on communicating the user's
needs to the developer or the developer's ideas to the
user and other interested parties."
Office of Management and Budget, December 5, 1994, Operational Concept Description (OCD), Data Item Description DI-IPSC-
81430.

4. What is a Concept of Operations?
4
A Concept of Operations (ConOps) document is
produced early in the requirements definition process
to describe what the system will do (not how it will do
it) and why (rationale). It should also define any critical,
top-level performance requirements or objectives
(stated either qualitatively or quantitatively) and system
rationale.
Systems Engineering Handbook: A Guide for System Life Cycle Processes and Activities, 4th Edition, INCOSE

5. What is a Concept of Operations?
5
The ConOps, at the organization level, addresses the
leadership’s intended way of operating the organization. It
may refer to the use of one or more systems, as black boxes,
to forward the organization’s goals and objectives.The
ConOps document describes the organization’s assumptions
or intent in regard to an overall operation or series of
operations of the business with using the system to be
developed, existing systems, and possible future systems.
This document is frequently embodied in long-range
strategic plans and annual operational plans.The ConOps
document serves as a basis for the organization to direct the
overall characteristics of the future business and systems, for
the project to understand its background, and for the users
of [ISO/IEC/IEEE 29148] to implement the stakeholder
requirements elicitation.
ISO/IEC/IEEE 29148

6. What is a Concept of Operations?
n Both the ConOps and the OpsCon are prepared by the
organization that has the business need for the System
of Interest.
6
A System Operational Concept (OpsCon) document
describes what the system will do (not how it will do
it) and why (rationale). An OpsCon is a user-oriented
document that describes system characteristics of the
to-be-delivered system from the user’s viewpoint.The
OpsCon document is used to communicate overall
quantitative and qualitative system characteristics to
the acquirer, user, supplier and other organizational
elements.
ISO/IEC/IEEE 29148

7. Transformation of Needs to Requirements
Starts with the ConOps
7
One underlying
principle
illustrated by
Figure 4.1 is that
when a decision
is made to satisfy
a need, that need
gives rise to a
corresponding
requirement or
set of
requirements.
Systems Engineering Handbook: A Guide for System Life Cycle Processes and Activities, 4th
Edition, INCOSE

8. DHS Guidance for ConOps
n DHS Acquisition Instruction/Guidebook #102-01-001
n DHS Acquisition Instruction/Guidebook #102-01-001:
Appendix D ‒ Capability Development Plan
n DHS Acquisition Instruction/Guidebook #102-01-001:
Appendix F ‒ Concept of Operations Sample Template and
Guidance
n DHS Acquisition Instruction/Guidebook #102-01-001:
Appendix H ‒ Operational Requirements Document (ORD)
n Analysis of Alternatives (AoA) Methodologies:
Considerations for DHS Acquisition Analysis,Version 3.0, 22
January 2014
8

9. Building the ConOps
Mission Needs Statement (MNS)
n Identify the required mission(s) in functional terms.
n Define the risks to accomplishing the functional outcomes.
n Describe capabilities required by DHS or its’
stakeholders/partners to accomplish the mission.
n Describe the capabilities independently of whether or not
DHS currently possesses them.
n Do not specify capabilities in terms of assets, equipment or
other means that might satisfy the need; i.e., state the
capability (need), not the solution (equipment). The next
part of this section also builds upon and references the MNS
section cited below. More detail than in the MNS may be
provided.
9DHS CONOPS Template, DHS Acquisition Instruction/Guidebook #102-01-001: Appendix F

10. Building the ConOps
Mission Capability Gap Analysis
n Using DOTMLPF/S/R/G factor structure describe the capability
gaps.
n Describe, at a high level, capabilities and gaps in context of how
DHS and its’ stakeholders currently perform the missions.
n Determine how existing and planned systems are conducting the
same or similar missions or performing same or similar functions.
n Determine whether these existing systems and planned programs
could be used or leveraged to provide the required capability.
n Assess why it is not possible to perform this mission with existing
capabilities and resources by showing that existing systems
cannot provide the required capability.
n Describe the difference between the current capability and the
future needs by describing the functions that lack systems with the
required capabilities.
n Assess how potential investment fits into DHS Enterprise
Architecture (EA) Transition Strategy.
10DHS CONOPS Template, DHS Acquisition Instruction/Guidebook #102-01-001: Appendix F

11. Building the ConOps
Operations and Support
n Missions ‒ statutory component and/or DHS mission
that the solution contributes to
n Users and Stakeholder ‒ groups of people or user
classes who will interact with the system
n Policies, Assumptions, and Constraints ‒ that apply to
the current or proposed system
n Operational Descriptions ‒ the proposed solution from
the user’s perspective
n Mission Support Description ‒ mission support
performance attributes
n Potential Impacts ‒ anticipated operational, mission
support and organizational impacts of the system
11DHS CONOPS Template, DHS Acquisition Instruction/Guidebook #102-01-001: Appendix F

12. Building the ConOps
Units of Measure
n Measure of Effectiveness - Operational measures of
success that are closely related to the achievements of
the mission or operational objectives evaluated in the
operational environment, under a specific set of
conditions.
n Measures of Performance ‒ characterize physical or
functional attributes relating to the system operation,
measured or estimated under specific conditions.
n Key Performance Parameters ‒ capabilities and
characteristics so significant that failure to meet them
can be cause for reevaluation, reassessing, or
termination of the program
12“Technical Measurement,” INCOSE–TP–2003–020–01

13. ConOps Addresses these
Missing Critical Success Factors
13
Unrealistic Performance
Expectations missing Measures of
Effectiveness and Performance
Unrealistic Cost and Schedule
estimates based on inadequate risk
adjusted growth models
Inadequate assessment of risk and
unmitigated exposure to these risks
without proper handling plans
Unanticipated Technical issues
without alternative plans and
solutions to maintain effectiveness
Cost and
Schedule
Impacts
TheLensoftheEssential
Views
“Borrowed” with permission from
Gary Bliss, Director, Performance
Assessments and Root Cause
Analyses (PARCA), Office of
Assistant Secretary of Defense for
Acquisition.