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Air Base Defense Rethinking Army and Air Force Roles and Functions for More Information on This Publication, Visit C O R P O R A T I O N ALAN J. VICK, SEAN M. ZEIGLER, JULIA BRACKUP, JOHN SPEED MEYERS Air Base Defense Rethinking Army and Air Force Roles and Functions For more information on this publication, visit www.rand.org/t/RR4368 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-1-9774-0500-5 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2020 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 The growing cruise and ballistic missile threat to U.S. Air Force bases in Europe has led Headquarters U.S. Air Forces Europe (USAFE) to reassess defensive options, both near and far term. In support of this reassessment, Headquarters USAFE asked RAND to explore the feasibility of USAFE acquiring ground-based missile defenses of its own and to consider the problem from both operational and service roles and functions perspectives. This report focuses primarily on issues relating to roles and functions, including the history of air base ground defenses, authorities for roles and missions, and case studies of Army–Air Force disputes regarding air base defense. It then assesses seven U.S. Air Force alternative courses of action to address air base active defense shortfalls. A companion volume discusses the operational aspects in greater detail. The research reported here was commissioned by then–Brig Gen Charles Corcoran, Director of Operations, Strategic Deterrence and Nuclear Integration, Headquarters USAFE and Air Forces Africa, and conducted within the Strategy and Doctrine Program of RAND Project AIR FORCE as part of a fiscal year 2019 project, “Ground-Based Air and Missile Defense of Air Bases.” RAND Project AIR FORCE RAND Project AIR FORCE (PAF), a division of the RAND Corporation, is the U.S. Air Force’s federally funded research and development center for studies and analyses. PAF provides the Air Force with independent analyses of policy alternatives affecting the development, employment, combat readiness, and support of current and future air, space, and cyber forces. Research is conducted in four programs: Strategy and Doctrine; Force Modernization and Employment; Manpower, Personnel, and Training; and Resource Management. The research reported here was prepared under contract FA7014-16-D-1000. Additional information about PAF is available on our website: www.rand.org/paf/ This report documents work originally shared with the U.S. Air Force on May 31, 2019. The draft report, issued on September 11, 2019, was reviewed by formal peer reviewers and U.S. Air Force subject-matter experts. iii Contents Preface ........................................................................................................................................... iii Figures ............................................................................................................................................ vi Tables ........................................................................................................................................... vii Summary ...................................................................................................................................... viii Acknowledgments ........................................................................................................................... x Abbreviations ................................................................................................................................. xi 1. Introduction ................................................................................................................................. 1 Background ............................................................................................................................................... 1 The Policy Problem ................................................................................................................................... 1 Research Approach ................................................................................................................................... 3 Purpose of This Report .............................................................................................................................. 3 Organization .............................................................................................................................................. 4 2. Threats to Air Bases .................................................................................................................... 5 Cruise Missiles .......................................................................................................................................... 6 Ballistic Missiles ....................................................................................................................................... 9 Hypersonic Weapons .............................................................................................................................. 12 Fixed-Wing Combat Aircraft, Civil Aircraft, and Larger Unmanned Aircraft Systems ........................ 15 Small Unmanned Aerial Systems ............................................................................................................ 16 Rockets, Mortars, and Non–Line-of-Sight Missiles ............................................................................... 19 Conclusions ............................................................................................................................................. 23 3. Air Base Defense Options ......................................................................................................... 26 Electronic Warfare .................................................................................................................................. 26 Defensive Counterair .............................................................................................................................. 32 Short-Range Air Defense Systems .......................................................................................................... 34 Passive Defenses ..................................................................................................................................... 44 Assessing the Versatility of Defensive Options Across Threats ............................................................. 51 Conclusion ............................................................................................................................................... 52 4. Roles and Missions: Key West to the Vietnam War ................................................................. 54 Air Force–Army Debates over Air Base Defense: 1950s ....................................................................... 55 1960s and 1970s: Vietnam—Defending Bases During War ................................................................... 61 The Failed Memorandum of Agreement ................................................................................................. 68 Issue Unresolved ..................................................................................................................................... 69 5. Roles and Missions: Cold War Europe to Today ...................................................................... 71 1960s and 1970s: Europe ........................................................................................................................ 71 1980s: Period of Army–Air Force Cooperation and Frustration ............................................................ 76 1990s: Little Air Force or Army Interest in Air Base Air Defense ......................................................... 85 iv From the Global War on Terror to the Present ....................................................................................... 90 Looking Toward the Future .................................................................................................................... 93 Key Insights ............................................................................................................................................ 95 6. Organizational Strategies to Improve U.S. Air Force Air Base Defense Capabilities .............. 97 A Framework to Better Align Service Responsibilities for Air Base Defense ....................................... 97 Alternative Air Force Courses of Action .............................................................................................
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