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Integrating Active and Reserve Component Staff Organizations: Improving the Chances of Success

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Integrating Active and Reserve Component Staff Organizations: Improving the Chances of Success C O R P O R A T I O N Integrating Active and Reserve Component Staff Organizations Improving the Chances of Success Laurinda L. Rohn, Agnes Gereben Schaefer, Gregory A. Schumacher, Jennifer Kavanagh, Caroline Baxter, Amy Grace Donohue For more information on this publication, visit www.rand.org/t/RR1869 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-0-8330-9828-3 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2019 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 Separate active and reserve military organizations have existed since the founding of the nation, and efforts to integrate them more closely—for example, to achieve greater efficiency, to make standards and practices more consistent, or to ensure commonality of purpose—date back to at least 1947. Not all of these efforts have been successful. The research reported here examines the factors that could increase or decrease the likelihood of success in undertaking such integrations. This report should be of interest to those concerned with active and reserve component organizational structure and cooperation. This research was sponsored by the Office of Reserve Integration within the Office of the Under Secretary of Defense for Personnel and Readi- ness and conducted within the Forces and Resources Policy Center of the RAND National Defense Research Institute, a federally funded research and development center sponsored by the Office of the Secre- tary of Defense, the Joint Staff, the Unified Combatant Commands, the Navy, the Marine Corps, the defense agencies, and the defense Intelligence Community. For more information on the RAND Forces and Resources Policy Center, see www.rand.org/nsrd/ndri/centers/frp or contact the director (contact information is provided on the web page). iii Contents Preface ............................................................................. iii Figures and Tables ............................................................... ix Summary .......................................................................... xi Acknowledgments .............................................................. xxi Abbreviations .................................................................. xxiii CHAPTER ONE Introduction ....................................................................... 1 Background ......................................................................... 1 Study Objective and Approach ................................................... 3 Organization of the Report ....................................................... 5 CHAPTER TWO The Total Force and Total Force Integration ................................ 7 Defining the Total Force .......................................................... 7 Defining Total Force Integration ................................................11 CHAPTER THREE Integrating and Changing Organizations Successfully ..................13 Factors That Affect the Success of Organizational Integrations .............14 Factors That Affect the Success of Implementing Organizational Change ....................................................................... 20 Factors That Affect Organizational Success ................................... 26 Best Practices Suggested by the Literature .................................... 30 The Challenge of Measuring Progress and Success .......................... 34 v vi Integrating Active and Reserve Component Staff Organizations CHAPTER FOUR Active and Reserve Component Integration in the Air Force ...........39 Evolution of Active and Reserve Component Integration in the Air Force ..................................................................... 40 Current Air Force Models of Integrated Organizational Structures and Processes ................................................................ 43 Lessons Learned ...................................................................49 Assessment of Active and Reserve Component Integration in the Air Force ..................................................................... 50 CHAPTER FIVE Active and Reserve Component Integration in the Army ................53 Evolution of Active and Reserve Component Integration in the Army ....53 Current Army Models of Integrated Organizational Structures and Processes .......................................................................55 Lessons Learned ...................................................................62 Assessment of Active and Reserve Component Integration in the Army ...63 CHAPTER SIX Active and Reserve Component Integration in the Coast Guard .......65 Evolution of Active and Reserve Component Integration in the Coast Guard ..........................................................................65 Current Coast Guard Models of Integrated Organizational Structures and Processes .................................................................67 Lessons Learned ...................................................................71 Assessment of Active and Reserve Component Integration in the Coast Guard ..........................................................................72 CHAPTER SEVEN Active and Reserve Component Integration in the Marine Corps .....75 Evolution of Active and Reserve Component Integration in the Marine Corps .................................................................75 Current Marine Corps Models of Integrated Organizational Structures and Processes ....................................................78 Lessons Learned ...................................................................81 Assessment of Active and Reserve Component Integration in the Marine Corps .................................................................82 Contents vii CHAPTER EIGHT Active and Reserve Component Integration in the Navy ................85 Evolution of Active and Reserve Component Integration in the Navy .....85 Current Navy Models of Integrated Organizational Structures and Processes .......................................................................89 Lessons Learned ...................................................................91 Assessment of Active and Reserve Component Integration in the Navy ...93 CHAPTER NINE Findings and Recommendations for Future Integration Efforts........95 Best Practices as Reflected in the Case Studies and Recommendations for Future Integration Efforts .............................................. 96 Additional Best Practices Identified in the Case Studies and Recommendations for Future Integration Efforts ...................... 103 Bibliography .................................................................... 111 Figures and Tables Figures 2.1. Range of Possible Meanings of Integration .......................11 3.1. Eight Errors Common to Organizational Change Efforts and Their Consequences ........................................... 26 4.1. U.S. Air Force Notional Classic Association Illustrating Operational Direction ...............................................47 6.1. Overall Organization of the Coast Guard ........................69 6.2. Coast Guard Headquarters Human Resources Directorate ....70 7.1. Marine Corps Active and Reserve Component Structure Comparison ..........................................................79 8.1. Navy Total Force End Strength ................................... 86 8.2. Integrated Navy Reserve Utilization ............................. 90 Tables 3.1. Possible Measures for Integration Best Practices .................35 7.1. Marine Corps Forces Reserve End Strength ......................76 ix Summary The existence of separate active and reserve components of the U.S. military dates back to the founding of the nation, and both compo- nents are mentioned in the Constitution.1 Debates about the roles of the components, their relationships, and the appropriate degree of inte- gration between them date back just as far.2 Various groups and indi- viduals, both within and outside of the federal government, have pro- posed merging or otherwise integrating active component (AC) and reserve component (RC) forces during recent decades, dating back to at least 1947.3 The rationales for integration have ranged from saving 1 See Constitution of the United States, Article I, Section 8, and Article II, Section 2. 2 For a more detailed description of the history on this subject, see Rostker, Bernard, Charles Robert Roll Jr., Marney Peet, Marygail Brauner,
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