Supporting Joint Warfighter Readiness
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C O R P O R A T I O N TIMOTHY MARLER, MATTHEW W. LEWIS, MARK TOUKAN, RYAN HABERMAN, AJAY K. KOCHHAR, BRYCE DOWNING, GRAHAM ANDREWS, RICK EDEN Supporting Joint Warfighter Readiness Opportunities and Incentives for Interservice and Intraservice Coordination with Training- Simulator Acquisition and Use rr-a159-1_cover_6x9_v7.indd All Pages 7/19/21 5:13 PM For more information on this publication, visit www.rand.org/t/RRA159-1. About RAND 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. To learn more about RAND, visit www.rand.org. 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Published by the RAND Corporation, Santa Monica, Calif. © 2021 RAND Corporation is a registered trademark. Cover: Cover (left to right): U.S. Army; U.S. Air Force/Airman 1st Class Tiffany Price; U.S. Navy/ Petty Officer 2nd Class Joseph Millar; U.S. Navy/Mass Communication Specialist Apprentice Riley McDowell. 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. About This Report This report documents research and analysis conducted as part of a project titled Supporting Joint Warfighter Readiness: An Analysis of Gaps Between Joint Training Needs and Training-Simulator Capabilities. The purposes of the project were to (1) investigate the gap between joint training needs that support readiness requirements across services and currently available and forthcoming technology in the training- simulator field and (2) recommend potential incentive structures for fostering cross-service collaboration for simulator acquisition and use. The research reported here was completed in January 2021 and underwent security review with the sponsor and the Defense Office of Prepublication and Security Review before public release. RAND National Security Research Division This research was sponsored by the Office of the Under Secretary of Defense for Personnel and Readiness and conducted within the Forces and Resources Policy Center of the RAND National Security Research Division (NSRD), which operates the National Defense Research Institute (NDRI), 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 About This Report ............................................................... iii Figures and Tables ............................................................... ix Summary .........................................................................xiii Acknowledgments ............................................................ xxiii Abbreviations ................................................................... xxv CHAPTER ONE Introduction ....................................................................... 1 Problem and Motivation .......................................................... 1 Background ......................................................................... 3 Objectives ........................................................................... 5 Scope ................................................................................. 5 Study Approach .................................................................... 6 Outline of This Report ............................................................ 9 PART I The Services: Organizational Structures, Requirements Processes, and Acquisition Processes ...................................11 CHAPTER TWO Coordination Within Services: Organizational Structures .............13 Approach ...........................................................................14 Results ..............................................................................15 Conclusion ........................................................................ 28 v vi Supporting Joint Warfighter Readiness CHAPTER THREE Requirements Processes ........................................................31 Approach ...........................................................................31 Results ..............................................................................32 Conclusion .........................................................................37 CHAPTER FOUR Acquisition Processes ...........................................................39 Approach ...........................................................................39 Results: Mapping the Acquisition Process .....................................39 Results: Case Studies Illustrating Why Interservice Differences Are a Problem ..................................................................... 42 Conclusion .........................................................................47 PART II Joint Operations: Training Needs, Coordination, and Incentives .....51 CHAPTER FIVE Joint Training Needs ............................................................53 Training Tiers .................................................................... 54 Training Process ...................................................................55 Approach ...........................................................................55 Results ............................................................................. 56 Conclusion .........................................................................62 CHAPTER SIX Coordination Between Services ...............................................65 Potential Coordinating Organizations ........................................ 66 Timeline of Organizations and Policy ..........................................74 Conclusion .........................................................................76 CHAPTER SEVEN Incentives to Develop Interoperable Simulation-Based Training ......79 Collaboration Between the Services: The Services Lack Sufficient Incentives to Collaborate on Simulation-Based Training ............. 80 Contents vii Collaboration Between DoD and Industry: DoD Lacks Sufficient Incentives to Overcome Industry Disincentives to Develop Interoperable Simulation-Based Training ................................ 84 Conclusion ........................................................................ 88 PART III The State of the Art ..............................................................91 CHAPTER EIGHT Current Capabilities Supporting Networking Simulators and Interoperability .............................................................93 Interoperability ................................................................... 94 Data Standards .................................................................. 113 Virtual Gaming ................................................................. 116 Security Considerations ........................................................ 126 Conclusion ....................................................................... 130 PART IV Conclusion ...................................................................... 135 CHAPTER NINE Summary, Primary Themes, and Actions for DoD Stakeholders .... 137 Summary ......................................................................... 137 Primary Findings ................................................................ 138 Recommendations .............................................................. 139 Future Work ..................................................................... 154 APPENDIXES A. Organizational Charts for the Services and the Joint Staff ........ 157 B. Documents Reviewed to Map Requirements Processes for Each Service ............................................................... 165 C. Acquisition Process and Stakeholders for the Services ............. 169 D. Training Process