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Implications of US Military Approaches to General and Flag Officer C O R P O R A T I O N KIMBERLY JACKSON, KATHERINE L. KIDDER, SEAN MANN, WILLIAM H. WAGGY II, NATASHA LANDER, S. REBECCA ZIMMERMAN Raising the Flag Implications of U.S. Military Approaches to General and Flag Officer Development For more information on this publication, visit www.rand.org/t/RR4347 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-1-9774-0488-6 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 This report presents findings to assist the Office of the Secretary of Defense in understanding what professional experiences and other characteristics the general and flag officers in each of the military services tend to share as a result of each service’s approach to personnel management and other related factors, and how these approaches might influence the ways in which general and flag officers lead, manage, and advise. Specifically, this report provides analysis of the fundamental elements of military personnel processes in each service and across the U.S. Department of Defense and identifies common career experiences within each service in categories such as career field, years in service, commissioning source, education and training, and duty assignments. This report further examines how these professional experiences and other characteristics might influence general and flag officers’ approaches to institutional leadership and management, and the type of strategic-level advice they might provide to civilian decisionmakers. This research was sponsored by the Office of Net Assessment in the Office of the Secretary of Defense 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 Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the Navy, the Marine Corps, the defense agencies, and the defense intelligence enterprise. For more information on the RAND Forces and Resources Policy Center, see www.rand.org/nsrd/frp or contact the director (contact information is provided on the webpage). iii Contents Preface ........................................................................................................................................... iii Figures ............................................................................................................................................ vi Tables .......................................................................................................................................... viii Summary .......................................................................................................................................... x Acknowledgments ...................................................................................................................... xxvi Abbreviations ........................................................................................................................... xxvii 1. Introduction ................................................................................................................................. 1 Research Objective .................................................................................................................................... 2 A Growing Emphasis on Senior Military Leader Development ............................................................... 3 Scope and Limitations ............................................................................................................................... 5 Implications for Officer Development in the U.S. Military ...................................................................... 7 Organization of This Report ...................................................................................................................... 8 2. Research Approach ...................................................................................................................... 9 Data Sources .............................................................................................................................................. 9 Methodology ........................................................................................................................................... 12 The Role of Organizational Culture in Service Approaches to Senior Leader Development ................ 17 Personality Traits, Experiences, and Abilities ........................................................................................ 18 Summary ................................................................................................................................................. 22 3. Key Processes in DoD Officer Career Management ................................................................. 23 Time in Grade and Years in Service ....................................................................................................... 23 Commissioning Source ........................................................................................................................... 25 Career Designations ................................................................................................................................ 27 Duty Assignments ................................................................................................................................... 30 Education ................................................................................................................................................. 35 Special Training ...................................................................................................................................... 38 Evaluations .............................................................................................................................................. 38 Promotion ................................................................................................................................................ 39 Summary ................................................................................................................................................. 44 4. The Army’s Approach to Generalship ...................................................................................... 45 Army Culture .......................................................................................................................................... 45 Official Guidance on Army Officer Development .................................................................................. 47 Fundamental Elements of Army General Officer Pathways ................................................................... 49 Other Factors That Matter in Army General Officer Selection .............................................................. 76 Summary ................................................................................................................................................. 78 5. The Navy’s Approach to Admiralship ...................................................................................... 81 Navy Culture ........................................................................................................................................... 81 Official Guidance on Navy Officer Development .................................................................................. 85 iv Fundamental Elements of Navy Flag Officer Career Pathways ............................................................. 89 Other Factors That Matter in Navy Flag Officer Selection ................................................................... 110 Summary ............................................................................................................................................... 114 6. The Air Force’s Approach to Generalship .............................................................................. 116 Air Force Culture .................................................................................................................................. 117 Official Guidance on Air Force Officer Development ......................................................................... 119 Other Factors That Matter in Air Force General Officer Selection ...................................................... 146 Summary ..............................................................................................................................................
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