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Air Force Strategic Planning: Past, Present, and Future C O R P O R A T I O N Air Force Strategic Planning Past, Present, and Future Raphael S. Cohen For more information on this publication, visit www.rand.org/t/RR1765 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-0-8330-9697-5 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 For a relatively young service, the U.S. Air Force has a remarkably rich intellectual history. Even before the Air Force’s official formation, the development of airpower has been dotted with such visionaries as Billy Mitchell and Henry “Hap” Arnold. The trend continued after the service’s formation with such airmen as John Boyd, Richard “Moody” Suter, and John Warden, who were years, if not decades, ahead of their time. At the same time, however, the Air Force’s long-term plans have not always proved particularly farsighted or even notable. Indeed, many of the Air Force’s senior leaders are skeptical of long-term strategic planning, and some even question why public strategies are produced altogether.1 This study, conducted in RAND Project AIR FORCE’s Strategy and Doctrine Program, asks the following question: With the Air Force facing increasing pressure to cut its headquarters staff, are public strategic-planning documents worth the time and energy required to produce them? It looks at what the Air Force has gotten out of its previous strategic-planning efforts. This report examines the evolution of Air Force strategic documents, particularly those produced after the Cold War. The report studies the purpose for these various strategies, the process by which they were created, and the effect these documents had on the service and other key constituencies. It concludes with lessons for Air Force leaders in developing future strategies. This research was sponsored by the Director of Strategy, Concepts and Assessments, Deputy Chief of Staff for Strategic Plans and Requirements (AF/A5S). It is part of a larger study, titled “Support for USAF Strategic Master Plan Implementation,” that assists the Air Force with executing its May 2015 Strategic Master Plan.2 This report should be of value to the national security community and interested members of the general public, especially those with an interest in strategic plans and the history of the Air Force. Comments are welcome and should be sent to the author, Raphael S. Cohen, or to the project leaders, Michael Mazarr and Sean Zeigler. Research was completed in September 2016. 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 1 Phillip S. Meilinger, “The Problem with Our Air Power Doctrine,” Air Power Journal, Spring 1992; interview with a retired senior Air Force general officer, January 6, 2016; interview with a retired senior Air Force general officer, April 14, 2016; interview with a retired senior Air Force general officer, September 1, 2016. 2 U.S. Air Force, USAF Strategic Master Plan, May 2015. iii conducted in four programs: Force Modernization and Employment; Manpower, Personnel, and Training; Resource Management; and Strategy and Doctrine. The research reported here was prepared under contract FA7014-06-C-0001. 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 July 18, 2016. The draft report, issued on May 27, 2016, was reviewed by formal peer reviewers and U.S. Air Force subject-matter experts. iv Contents Preface ........................................................................................................................................... iii Figure and Tables ........................................................................................................................... vi Summary ....................................................................................................................................... vii Acknowledgments ....................................................................................................................... viii Abbreviations ................................................................................................................................. ix 1. Strategic Planning and Its Discontents ...................................................................................... 1 2. Defining Strategy and Measuring Its Effect .............................................................................. 3 3. Air Force Strategy from Its Formation Through the Cold War ................................................. 8 The Army Air Corps/Army Air Force ....................................................................................................... 8 From the Air Force’s Founding Until the Vietnam War ......................................................................... 14 The Vietnam War and Its Aftermath ....................................................................................................... 17 Conclusions from the Period ................................................................................................................... 23 4. Air Force Strategy from 1990 to the Present ........................................................................... 24 Global Reach—Global Power and Blueprints for the Objective Air Force (1990) ................................ 25 Global Presence (1995) .......................................................................................................................... 32 Global Engagement (1996) ..................................................................................................................... 34 Long-Range Plan (1997) ......................................................................................................................... 37 America’s Air Force Vision 2020 (2000) ................................................................................................ 38 “Rapid Aerospace Dominance” (2001) ................................................................................................... 42 Air Force Transformation Flight Plan (2002, 2003, and 2004) ............................................................. 43 Lasting Heritage . Limitless Horizons: A Warfighter’s Vision (2006) ............................................... 46 Air Force Roadmap (2006, 2008) ........................................................................................................... 47 The Nation’s Guardians (2007) .............................................................................................................. 49 2008 Air Force Strategic Plan (October Version)/CSAF Vectors 2010 and 2011 ................................. 50 The World’s Greatest Air Force—Powered by Airmen, Fueled by Innovation (2013) .......................... 52 Global Vigilance, Global Reach, Global Power for America (2013) ..................................................... 52 America’s Air Force: A Call to the Future (2014) .................................................................................. 54 Air Force Future Operating Concept: A View of the Air Force in 2035 (2015) .................................... 56 Conclusions from the Period ................................................................................................................... 57 5. Lessons for Air Force Strategic Planning ................................................................................ 59 Encourage Ideas from Below .................................................................................................................. 60 Know Your Environment ........................................................................................................................ 61 Develop Strategy from the Top ............................................................................................................... 63 Keep the Strategy Succinct, Substantive, and Sharp ............................................................................... 65 Focus on the Process as Much as the Product ........................................................................................
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