FROM THE PREAMBLE TO THE FOXHOLE BY Copyright 2010 Gregory Lawrence Cantwell BS, United States Military Academy, 1984 MSIR, Troy State University, 1996 MBA, Embry-Riddle Aeronautical University, 1997 MMAS, School of Advanced Military Studies, 2003 MSS, United States Army War College, 2007 Submitted to the graduate degree program in History and the Faculty of the Graduate School of the University of Kansas In partial fulfillment of the requirements for the degree of Doctor of Philosophy ____________________ Dr. Theodore A. Wilson Chairperson Committee members* ____________________ Dr. Sheyda Jahanbani * ____________________ Dr. Jacob Kipp * ____________________ Dr. Peter Schifferle * ____________________ Dr. Brent Steele * Date defended: 20 April 2010 The Dissertation Committee for Gregory Lawrence Cantwell certifies that this is the approved version of the following dissertation: FROM THE PREAMBLE TO THE FOXHOLE Committee: ___________________ Dr. Theodore A. Wilson Chairperson Date approved: ____________ ii SEARCH TOPICS Army force management school, Army inspector general school, Army organizational life cycle model, civil-military relations, defense policy, force management, functional life cycle model of the Army, force structure, future policy considerations, joint strategic planning system, management, military strategy, modernization, mother of all charts, national security, policy formulation, Richard Trefry. iii ABSTRACT Defense policy formulation has evolved significantly since 1940, yet these processes have a constitutional foundation. This study described the process that the U.S. government uses to meet its security challenges. This study examined the interdependent relationships between the Joint Strategic Planning System (JSPS) and the Army Force Management System (AFMS); it analyzed the process the Army uses to determine the forces and equipment needed to meet the civilian leadership‘s guidance for national security. It explored this process ―From the Preamble to the Foxhole‖. This study chronicled how Lieutenant General Richard G. Trefry (retired) was instrumental in the development of a systematic approach to managing change across the Army in the 1980s. The histories of many independent projects are portrayed in this study which comprised this effort. Chief among these were the development of: the Army Force Management System (AFMS), the U.S. Army Force Management School (USAFMS), the Mother of All Charts (MOAC), and the role of the Inspector General of the Army. This study demonstrated how civil-military relations are critical to defense policy determination. Lastly, it provided some future policy considerations that demonstrate the interrelationships between force management and national security policy development. iv ACKNOWLEDGEMENTS Research and writing demand solitary labor, but I could never have completed this work alone. Throughout this project many individuals and institutions provided essential support. I would like to express my sincere thanks to several friends and colleagues who generously supported my efforts. Finally, my greatest thanks go to my family. Maureen, Maryanne, and William were very patient in understanding my requirements for time to complete this project. I appreciate their support and understanding more than I can ever express. The following individuals played a key role in the planning stages of this project and have supported me throughout its development. Without in any way implicating these individuals in the imperfections this work may contain, I thank them sincerely for their generosity in responding to my requests for help. First, Dr. Theodore Wilson provided everything that could be asked of a model advisor. He provided ample proportions of patience, inspiration, support, and guidance that made this project personally meaningful and professionally productive. The staff and faculty at the University of Kansas also helped me develop various portions of this project, specifically: Dr. Stephen Epstein, Dr. Sheyda Jahanbani, Dr. Jonathan Earle, and Dr. Brent Steele. Lieutenant General (retired) Richard Trefry has provided a lifetime of service and contributions to the nation. He generously made his time and the resources of the Army Force Management School available to me. His staff liberally provided their v time and assistance to make this project possible. Mr. Steve Wilson in particular provided me with tremendous access to records and information. At Carlisle, Pennsylvania, Dr. Anna Waggener, Dr. William Johnsen, COL (retired) Robert Taylor, Dr. Craig Nation, COL Paul Jussel, Col Steven Weiler, Professor James Hanlon, Mrs. Virginia Poole, Mr. Thomas Hendrix, and the staff and faculty at the U.S. Army War College contributed to my development and made the opportunity available for me to pursue this project. The Army War College Foundation provided a grant that enabled transcription of the ―Trefry Interviews‖ and their addition to the Army War College archives. Mrs. Erin Girard transcribed these interviews, enabling me to focus on analysis and writing, rather than the difficult task of transcription. Her transcription service came highly recommended from other faculty members and deservedly remains so. Professor James Hanlon was particularly generous with his time in his ―writing for publication‖ class. Subsequently, Jim graciously provided numerous hours of advice and counsel in the preparation of this dissertation. He is a truly valuable member of the War College faculty that deserves greater recognition for his unselfish support of the institution. At Fort Leavenworth, Kansas, The research librarians at the Combined Arms Research Library (Rusty Rafferty, John Rogers, and John Dubisson) provided detailed responses to my many inquiries for information or assistance. Their services were invaluable. My fellow instructors at the Command and General Staff College also generously gave me their time to help develop this product. vi Dr. James Schneider, Dr. Peter Schifferle, and Dr. Jacob Kipp at the School of Advanced Military Studies provided great mentorship along the way. Pete was particularly generous with his time, support, and guidance throughout the summer of 2008. I assume full responsibility for what appears in the following pages, including any errors of omission or commission, in spite of all the assistance that the aforementioned personnel have provided. vii TABLE OF CONTENTS TABLE OF CONTENTS ..................................................................... viii LIST OF TABLES AND FIGURES ...................................................... x ABBREVIATIONS ................................................................................ xii Chapter One ............................................................................................. 1 Introduction ...........................................................................................1 Relevance of Study ............................................................................. 10 Chapter Two ........................................................................................... 13 The Joint Strategic Planning System ............................................... 13 The President and Congress .............................................................. 19 The Secretary of Defense ................................................................... 25 The Chairman of the Joint Chiefs of Staff ....................................... 31 Combatant Commanders and Services ............................................ 46 Conclusion ........................................................................................... 48 Chapter Three ........................................................................................ 51 Findings: The History of the Army Force Management System .. 51 Doctrine… ........................................................................................... 74 Management Theories ....................................................................... 79 Military Project Management ........................................................... 91 Conclusion ........................................................................................... 97 Chapter Four .......................................................................................... 98 Findings: The History of the Army Force Management School ... 98 Force Management Training since the 1980s .................................. 99 Findings: The History of the Mother of All Charts ...................... 114 Conclusion ......................................................................................... 125 Chapter Five ......................................................................................... 127 Civil-Military Relations ................................................................... 127 Conclusion ......................................................................................... 154 viii Chapter Six ........................................................................................... 157 Implications of What Had Gone Before for Today ...................... 157 Stress on the Force ........................................................................... 157 Force Structure Considerations ...................................................... 161 Basing ................................................................................................ 164 Strategic Flexibility .......................................................................... 170 Equipment