DTIC ADA423749: The Goldwater-Nichols Act and the Joint Duty Promotion Requirement: An Analysis of the US Military's Implementation of a Congressional Mandate

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THE GOLDWATER-NICHULS ACT AND THE JONT DUTY PROMOTION
REQUIREMENT: AN ANAA YSIS OF THEC.5, MILITARY IMPLEMENTATION
OF A CONGRESSIONAL MANDATE

MAT VENERTMICHAEL C.

7 ESTEE RE ENTEATOW WANE RS ORR
J GRORGE MASON UNIVERSITY

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SGN TORTS AEC WES ND A ORETET
UNE DEPARTMENT OF THE AIR FORCE

SUUICIA, BLDG 125,

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‘ePATE Om 5883

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ABSTRACT

‘THE GOLDWATER-NICHOLS ACI AND THE JOINT DUTY PROMOTION
REQUIREMENT:

[AN ANALYSIS OF THE LS, MILITARY'S IMPLEMENTATION OF A.
CONGRESSIONAL MANDATE

Michael C. Venedi, PhD,
George Mason University, 2004

Disvertation Committee Chair: Dr, James P. PGfiner

‘Under the Gotdvster Nichols Act of 1986, sever changes were insted by
‘Congress in an cffort to reform the WS, miflry. ‘Tide V, Joint Ofcce
‘Management. of he Att wns sired at reforming the officer development the
servieenin an effort to climuat the pzochial service disponiions that had previously
plagued U.S. miliary cffarls. Tile TV inated polices to provide officrs with

joint edugation and joint experience in an effort to develop officers with a multi.

service or joint porspective, In an effort to provide sentor officers with,
‘experience, al officers promoted ta the rank of brigadier general ur rear advil (O7}
must have completed jo doty sesignment prior to promotion, ‘This dissertation

looks speciically at she joint duty promotion requirement insinvted under ‘Title 1V in

an effort to analyze the UES. military's ability to implement a congressional enandate
“The implementation ofthe joint duty assigament as 2 promoling requirement

‘hus heen x souree of eoncem for both the scrvices and eongreasional policymakers.
‘The servis have walntained thatthe juin daty assignment is dficul requirement
to.mect fo all officers promoted to O7. Congressional poliesmekers counter hat
rpument saying thatthe series have refused ownership ofoim office
evelopment becousyiLvhllenged ther conto over officer development. Previous
studies have fou offices able o avoid this requieement and sill be promoted yet no
empirical analysis exists of ihe fmplememation ofthis puley. This tudy examines
the joint duty hin of over 900 officers and wes tala, analysis of varie, and

segession analysis to determine if dhe services arc bchaving in a se yerving manner

‘within ts fmplomentaton process by promoting oles witht meeting this
requirement.

‘ve mcome of his sty finds thal he services ar promoting thai best
ciiars without having ful che joint duty promotion nxjienent indicating that
the services ar behaving in. selfinurested way. Hosiever, the majority of offices
are mectng thy equirement and the promotion ime berween hose thet complied and
id no comply with this requirement i nt so lage that it suggests al offices should
‘in compliance with his poly

“Thi reserehcontibunes to the study of congresions reform af the niliary

and seeves as an example of ths military's uhility to implement cangressionally

instituted policies.
‘THE GOLDWATER-NICHOTS ACT AND THE JOINT DUTY PROMOTION
REQUIREMENT:
AN ANALYSIS OF THE.U.S. MILITARY’S IMPLEMENTATION OF A
CONGRESSIONAL MANDATE

A digseriainn sumilted in partial fulfillment of the reqnizements forthe degree of
Doctor of Philosophy at George Mason University

By

Michael C. Veneti
nited States Aie Fores Acadeuty. B.S, 1991.
‘Troy State University, M.S, 1997

Direetor: Dr. James P. Pitter, Professor
Department of Pablic Policy

Spring Semester 2004
‘George Mason University
Fairi, VA
DEDICATION

“To those that seek to improve the performance of the U.S. military.
ACKNOWLEDGEMENTS,

A disecrtation is never the work of one psryon and there are many’ dcbts wi
have inenrod in my research process. [am gralefil to certain faculty members of the
34° ducation Group who encouraged me to undertake this ask. Liewenam. Colonel
‘eggy Ball, Licolemunt Colonel John Higgs, and 1eafenant Colonel Janct Augustine alt
provided me with the opportanity to attend gradusle schol and encouraged me to purme
this degree, Or. Charles Krupnick, Lieutenant Colonel Ryan Haaland, and Major Patrick
Dorey provided critical insight into the doctoral process as I progressed.

[wish to thank Teri Cholar and Mike Dove at she Defense Manpower Data Center
‘in Monterey, California, for spending their valuable time providing me with the data
necessaty for this analysis, Specifically, Teri Choler provided me withthe keys to
understanding miliary personnel management and helped me make sense of my database.
Tsyould also Tike o thank members of the Joint Saf Joint Offieer Mansgemem Branch
Yr parciwlar, Karen Miller and Lieutenant Colonel Tin Nelson spent considerable time
and enewgy answering my questions. ‘Their assistance was invaluable, They answered
countless quostions,filded dazens of emails, andl were subjesned te multiple visits by me
as [tried to determine how joint day is tracked for officers

1 thank my comamitice members Dr, James PTiffher and De. David Armor who
‘nitoduced we me important concep that shaped this dissertation and proviikeé me with
the appropriate mtivasions for dis research. ‘The rclationship between the executive
offfoe and Cinyressinttodaced to se by Dr. PBftner first piqued my interest inthe
passege ofthe Goldwater-Nichols Act. Tho satisfuction found in the statistical analysis
‘Fe policy was made clear to me by Dr, Armor. These two men have my professional
respect and heartfelt appreciation for making me a better student, escarcher, und writer

Toould also Tike to thank may fellow students ad professional colleagues who
provide me with insight, suppor, and motivation dhroughout this program. Dero Farr
and Andiea Moris helpei me with muuch needed computer knowledee and motivation
thioughont the writing of my dissertation, To the multitude of profeseiamal colleagues in
the military Tspoke with regarding joint duty, you have my gratirude for taking time cut
to answer the questions of gradue silent ixhem wore pressing matters waited and
‘offering me encouragement lo tackle this topie, A. spocial thanks i ulso owed to Sharon

1ey who prowfead my work and in turn foroed ae to be a more conscientious write,
‘Lasity, T would ke to thank membors of my fimnily and my friends who bad t0
put up with me during this process. While I onjoyed this experience immensaly, they
‘ould nat help bur bear the brunt of my deeires to be back in the Air Fores during the
initial portion of tis prograra era without my mother’s intial cnoonragement T would
Thave never undertaken this tsk.
TABLE OF CONTENTS

Page
Abstract. se
‘Chapter One: lutroduetion.

(Cliapter Two Literature Review.

Prior Research 10
Gotdater-Nicbos 19
Policy Implementation 31
Conclusion %
Chapter Three: Joine Duty Assignment Polley... 8

‘Gowater-Nicholy Act
‘The Need for Reforts,
Problems Identified

Tito IY.
Title TF Requirements

Joint Duty Assignment, 4
History ofthe Foi Duty Assignment. 35

Conclusion

(Chapter Four: Joint Implementation Cuneerns. eesesns none 89

Reluetant Portier oor
‘Conflicting Objectives.
Service Requirements...
Service Auronomy
Roots Service Autonomy.
Comgressionn! Support for Service Autonomy.
Authority and snforeement

Policy Design
Proseriplive Legislation
Ontcers'Fimeline.
Joint Daty Assignment List

Congressional efforts.

Conclusion...

Chapter Five: Theory and Conreptual Model,

Theory.
Civitian Conte! af he Miliary.
Tmplementation ‘Teary.o.-

Key Definitions und Variables of lnerest..

Teint Duty Variable... .
Waiver Criteria
Careee Feld.
Promotion Time.
Goldwater-Nichols Act
Promotion Variables,

Hypotheses Resulting from the Model

Conclusion,

‘Chapter Six: Data and Methods.

Dataset.
Methodelogy..
Compliance. .
Joint Duty and Promotion Time.
‘Career Field and Joint Duty,
‘Conclusion... no
1
Compliance... nz
Hypothesis One. Sits
118

‘Sub-hyporthesis One.
Ioiec Duty and romatios Tie... .
Freand Post Goldwater-Nichols Act.
Joint Doty and Promotion Time.
Sub-Hypothesis ‘Two,
‘Sab-Hypothesfs Three
Joint Duty and Promotion Time by Serviee.
“Hypothesis Two. .

Canelosion..

‘Chapter Bight: Discussion and Conclustan.

Future Research,

Policy Implications.
Conclusion. cry
Appendix A: Sapplements ¢o Chapter Srven Analysts and Windings. 146

Appendix B: Variable List

Appenilix C: Stata Calealations and Cadebook..

Appendix

9: Cuntuet Information for Backgrenad Information. saved TT

[Bahttogrophy.

Curriculum Vitae,
LIST OF TABLES,

Table Prue
Table 4.1; Field Grade Service Promotion Requirements a “4
Table 5.1: Critical Cocupational Specialties used for Combat portion of Carver Field

Variable . seven a 9
Table 7.1; Waiver Peroentages.. 13
‘Tube 7.2: DoD Compliance with Joint Dury Requirement 13
‘able 7.3: Scrvioe Compliance with the Joint Duty Resuirement. 4
‘Table 74: Promotion Time from 06 to O7 Pre and Post Goldwater-Nichols. 120
‘Table 7.5: Promotion ‘Time from 04 o 07 Pre and Post Goldwater Nichols. 120
able 7.4: Significance Testor Promotion Tins: Pre and Post Goldwater Nichols

Ast. oesntenteest . een 121

‘able 7.7: Regression Results for Prom

> Limes: Pre an Post Goldwater Nichols
Act ne

‘Table 7.8: Promotion Tine fiom 06 lo O7 dy Joiat Duty Status

‘Table 7.9: Promotion Time from 04 to O7 by Joint Duty Stats.

“Table 7.10: Significance Test for Joint Duty Assignment.

‘Table 7.11: Regression Results for Joint Duty Assignment

‘Twhte 7.12: Peoraotion Time froma O6 to OT hy Service.

Table 7.13: Promotion Time from 04 10 7 by Servie.

‘Table 8.1: Time Spent in Field Grade Ranks. 136