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Review of Army Total Force Policy Implementation C O R P O R A T I O N Review of Army Total Force Policy Implementation Ellen M. Pint, Christopher M. Schnaubelt, Stephen Dalzell, Jaime L. Hastings, Penelope Speed, Michael G. Shanley For more information on this publication, visit www.rand.org/t/RR1958 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-0-8330-9821-4 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2017 RAND Corporation R® is a registered trademark. Limited Print and Electronic Distribution Rights This document and trademark(s) contained herein are protected by law. This representation of RAND intellectual property is provided for noncommercial use only. Unauthorized posting of this publication online is prohibited. Permission is given to duplicate this document for personal use only, as long as it is unaltered and complete. Permission is required from RAND to reproduce, or reuse in another form, any of its research documents for commercial use. For information on reprint and linking permissions, please visit www.rand.org/pubs/permissions. The RAND Corporation is a research organization that develops solutions to public policy challenges to help make communities throughout the world safer and more secure, healthier and more prosperous. RAND is nonprofit, nonpartisan, and committed to the public interest. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. Support RAND Make a tax-deductible charitable contribution at www.rand.org/giving/contribute www.rand.org Preface This document reports the results of a research project entitled “Review of Army Total Force Policy Implementation.” The purpose of the proj- ect was to review the implementation of the Army Total Force Policy and to provide recommendations for sustaining and/or modifying its objectives to more effectively achieve a more integrated operational force. In this report, we review the Army’s progress in implementing the Army Total Force Policy across the domains of doctrine, organization, collective training, mobilization, materiel, leadership and education, personnel, and facilities. Our assessment is based on objective indica- tors as well as interviews with stakeholders in the Regular Army, Army National Guard, and U.S. Army Reserve. We also discuss related rec- ommendations made by the National Commission on the Future of the Army, obstacles to integration, and additional steps the Army could take to move toward the goal of total force integration. This research was sponsored by the Office of the Chief, Army Reserve, and conducted within the RAND Arroyo Center’s Person- nel, Training and Health program. RAND Arroyo Center, part of the RAND Corporation, is a federally funded research and development center sponsored by the United States Army. The Project Unique Identification Code (PUIC) for the project that produced this document is RAN167282. iii Contents Preface ............................................................................. iii Figures .............................................................................vii Tables .............................................................................. ix Summary .......................................................................... xi Acknowledgments .............................................................. xxi Abbreviations .................................................................. xxiii CHAPTER ONE Introduction ....................................................................... 1 Methodology ....................................................................... 3 Organization of This Report ...................................................... 5 CHAPTER TWO DoD and Army Total Force Policy ............................................ 7 Evolution of Total Force Policy ................................................... 7 The Army Total Force Policy ....................................................11 National Commission on the Future of the Army ............................21 Summary .......................................................................... 22 CHAPTER THREE ATFP Implementation Within DOTMLPF Functions ...................25 Doctrine ........................................................................... 26 Organization .......................................................................31 Training ............................................................................47 Mobilization .......................................................................55 Materiel .............................................................................62 v vi Review of Army Total Force Policy Implementation Leadership and Education .......................................................70 Personnel .......................................................................... 77 Facilities ........................................................................... 92 Summary ...........................................................................95 CHAPTER FOUR Conclusions and Recommendations ........................................ 97 Doctrine ........................................................................... 98 Organization ...................................................................... 99 Training ........................................................................... 99 Mobilization ...................................................................... 99 Materiel ........................................................................... 100 Leadership and Education ..................................................... 100 Personnel ......................................................................... 101 Facilities .......................................................................... 101 Related Research ................................................................ 102 APPENDIXES A. Interview Protocol ........................................................ 105 B. Department of Defense Directive 1200.17, Managing the RCs as an Operational Force ......................... 109 C. Army Total Force Policy ................................................. 121 D. Additional Data on Equipping Rates for Selected Unit Types ... 127 E. Additional Data on Cross-Component Attendance at ALC and SLC .............................................................. 133 References ...................................................................... 137 Figures 3.1. AUPP ................................................................. 34 3.2. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value ...................................65 3.3. Trends in Cross-Component Attendance at Basic Leader Course ........................................................73 3.4. Promotion Rates for Title XI Officers vs. All Army Officers ................................................... 80 D.1. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value for Different Types of MP Companies .................................................... 128 D.2. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value for Different Types of Transportation Companies ....................................... 129 D.3. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value for Infantry Battalions by DARPL BIN .................................................... 130 D.4. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value for MP Companies by DARPL BIN ....................................................... 131 D.5. Median Percentage of Authorized Equipment on Hand, No Substitutes, by Dollar Value for Transportation Companies by DARPL BIN ...................................... 132 vii Tables S.1. Remaining Challenges to Be Addressed ......................... xix 1.1. List of Army Organizations Included in Interviews .............. 4 2.1. Summary of ATFP Implementation Guidance ..................15 3.1. AR Changes Since 2012 ........................................... 28 3.2. Multicomponent MTOE Units ................................... 43 3.3. RC Participation in FY 2016 NTC Rotations ....................51 3.4. Army Utilization of 10 U.S.C. 12304b Mobilization Authority ............................................................. 60 3.5. Installation Funding by Command .............................. 94 E.1. Trends in Cross-Component Attendance at ALC and SLC ...................................................... 134 ix Summary Over the past four decades, the Army has developed policies and pro- grams to address the complex task of integrating its active and reserve forces. Despite those efforts, two key, and often contentious, issues remain: 1. how best to integrate the Army’s active components (ACs) and reserve components (RCs) 2. how best to apportion roles, missions, force structure, and other resources among the components. The Secretary of the Army issued the Army Total Force Policy (ATFP) on September 4, 2012, to define further the steps that should be taken to integrate all components as a total force. Since 2012, changes in the Army budget, force structure, operational environment, and future operating concepts have been made that could affect the Army’s ability to implement the ATFP. However, while significant progress has been made in meeting ATFP objectives, much work still must be done to achieve a fully integrated, operational total force that can
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