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■ Briefing at Camp Rhino,southern Afghanistan. Bivera) Pacific (Johnny Creating a New Path mera Group, Ca mbat Co Fleet for Joint Education By R O B E R T M. A N T I S and C L A U D I A H. C L A R K I ncreasing challenges are raising the opera- multinational, and interagency operations should tions tempo for military organizations and be developed and implemented.” It is imperative for personnel deployment, complicating that joint education be expanded to provide req- training and education. An important aspect uisite skills to all personnel operating in this com- of readiness is the ability to plan and execute new plex environment. missions amidst the turmoil. Combatant commanders and their staffs must deal with humani- Not a Deviation tarian assistance and disaster relief, enforcement General Henry Shelton, USA, said, “Educa- of no fly zones, noncombatant evacuations, and tion and leader development are vital...to fulfill new types of war against terrorism. Thus Joint both short-term needs and long-term require- Pub 3-0, Doctrine for Joint Operations,states, “train- ments. Education must be thought of not as a de- ing and education programs focusing on joint, viation from a soldier’s duty, but a central and continuing focus.”1Joint professional military education (JPME) must ensure that officers support- Robert M. Antis is curriculum coordinator for the Joint and Combined ing combatant commanders can address the full Staff Officers School, Joint Forces Staff College, and Claudia H. Clark range of tasks. “All service and joint educational serves as head of the Training and Operations Department at systems also serve another important role by Expeditionary Warfare Training Group, Atlantic. helping to meet current readiness requirements.” 74 JFQ / Spring 2002 Report Documentation Page Form Approved OMB No. 0704-0188 Public reporting burden for the collection of information is estimated to average 1 hour per response, including the time for reviewing instructions, searching existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information, including suggestions for reducing this burden, to Washington Headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, Arlington VA 22202-4302. Respondents should be aware that notwithstanding any other provision of law, no person shall be subject to a penalty for failing to comply with a collection of information if it does not display a currently valid OMB control number. 1. REPORT DATE 2. REPORT TYPE 3. DATES COVERED 2002 N/A - 4. TITLE AND SUBTITLE 5a. CONTRACT NUMBER Creating a New Path for Joint Education 5b. GRANT NUMBER 5c. PROGRAM ELEMENT NUMBER 6. AUTHOR(S) 5d. PROJECT NUMBER 5e. TASK NUMBER 5f. WORK UNIT NUMBER 7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES) 8. PERFORMING ORGANIZATION Center for Counterproliferation Research National Defense University REPORT NUMBER Washington, DC 20319-5066 9. SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES) 10. SPONSOR/MONITOR’S ACRONYM(S) 11. SPONSOR/MONITOR’S REPORT NUMBER(S) 12. DISTRIBUTION/AVAILABILITY STATEMENT Approved for public release, distribution unlimited 13. SUPPLEMENTARY NOTES The original document contains color images. 14. ABSTRACT 15. SUBJECT TERMS 16. SECURITY CLASSIFICATION OF: 17. LIMITATION OF 18. NUMBER 19a. NAME OF ABSTRACT OF PAGES RESPONSIBLE PERSON a. REPORT b. ABSTRACT c. THIS PAGE UU 8 unclassified unclassified unclassified Standard Form 298 (Rev. 8-98) Prescribed by ANSI Std Z39-18 Antis and Clark service perspective. Phase II would build on Phase I as presented by the service schools and concentrate on the integrated deployment and employ- ment of multi-service forces. The Phase II course was directed to concentrate on joint doctrine, use case studies in developed and undeveloped contingency theaters, and encourage joint perspec- tives while increasing understanding of service Bennett) cwualst uirmesp. lTemhee nptreodp oisna lt htoe eFsYta9b0l isNha tsipoencaifli cD pehfeanssees Ann Authorization Act. Christina GoldMwaotsetr -Nofic thhoels sAtcrtu acntudr seu ibnsetqroudenutc eledg iisnla ttiohne mpany ( has remained in law. In addition to defining what Co are considered joint matters in education, Title X Signal of the U.S. Code also highlights rigorous stan- 55th dards, which is as much a readiness as an educational issue. Just as rigorous training ensures that Checking identification near Strpce,Kosovo. personnel are prepared for their duties, rigorous educational standards ensure that their leaders This educational preparation contributes substan- are too. tively to the readiness of the CINC for daily mis- Guided by the needs of the combatant com- sion execution. manders and congressional mandates, the joint While readiness is crucial in itself, education education vision was refined through the officer also enables the military to manage its transfor- professional military education policy (OPMEP). mation, which is more than making incremental Issued as an instruction by the Chairman (CJCSI improvements to current capabilities. Rather, 1800.01A), the policy provides the primary guid- added Shelton, “transfor- ance for all joint instruction from pre-commis- the Skelton Panel prescribed mation is first and foremost sioning to the Capstone Course. It mandates the an intellectual exercise, re- small seminars, focusing on fundamental learning objectives for institutions, quiring the brightest minds focusing their joint educational efforts. However, active versus passive learning actively engaged in taking other sources of input need attention as well. In our Armed Forces to new conjunction with OPMEP, the Chairman rou- and higher levels of effectiveness. Therefore, the tinely publishes special areas of emphasis (SAEs). road to transformation begins with a strong pro- Topics such as peace operations, asymmetric war- gram of education and leader development.” fare, and consequence management, selected well The environment for joint education already before September 11, highlight the importance of contained in law and regulation and programs in this tool in maintaining relevance. These sources place can address the above concerns. Solid cur- are complemented by congressional guidance, riculum and assessment/evaluation in use in which not only specified topics, but also ad- JPME are a starting point. Proposed here is confir- dressed the learning environment and the best mation of the efforts to date and a greater role for teaching techniques. The Skelton Panel, for ex- the current framework in expanding the system. ample, prescribed small seminars, focusing on ac- This can assist the joint force commander with tive versus passive learning. the variety of missions he faces. Thus ample guidance exists regarding what First, it is necessary to examine those forces should be included in joint education on various that have defined JPME needs. Congress gave spe- levels. However, the central issue addressed by cific requirements for joint education with the Shelton and others is the need for a greater avail- Goldwater-Nichols DOD Reorganization Act of ability of joint education as well as more levels of 1986. How they should be implemented was de- detail. Current initiatives might address these dif- tailed for the Chairman in the House Report of ficulties. The question is whether we will maxi- the Panel on Military Education of the 100thCon- mize time, money, and personnel to provide the gress, known as the Skelton Panel Report. The most appropriate education to each servicemem- focus of all joint curricula is to be on combatant ber at the right time. command and three-star joint task force (JTF) contingency levels. The report proposed that the A Spectrum of Joint Education intermediate service colleges be identified as This article proposes integrating current joint Phase I of JPME and teach joint education from a education with new capabilities. Only by linking existing resources to innovative initiatives can Spring 2002 / JFQ 75 ■ JOINT EDUCATION DOD meet this wide-ranging shortfall. The JPME of acculturation Congress desires and that is Phase II institution of the National Defense Uni- needed for joint specialty officers. An examina- versity, Joint Forces Staff College (JFSC), must tion of the program therefore demonstrates the serve as the focal point. As the school Congress necessary background for a comprehensive plan chartered to address joint specialty officer needs, and shows the potential of existing material to its success is unquestioned. As the school that ed- underpin the other elements of the educational ucates the largest portion of staff officers being as- spectrum proposed here. signed to the combatant commanders, it must The integrated JFSC curriculum combines a serve as the cornerstone of this initiative. Shelton unique teaching environment with a full range of pointed out that although its seats are not rou- assessment strategies linking the educational ex- tinely filled, many individuals are still unable to perience to critical needs of the combatant com- attend. More importantly, an even greater number mands and JTF staffs. Students are evenly distrib- have no need for such extensive education yet still uted into 17–19 seminars, usually including an require some level of preparation. But in the cur- international officer and often an interagency rent structure there is no alternative for them. representative. Seminars serve as representatives The Skelton Report speaks of a spectrum of of a CINC staff or of a joint task force, thereby joint education spanning the pre-commissioning emphasizing the skills Shelton highlighted. Serv- programs of the Reserve Officer Training Corps ing in a notional body, Africa Command and service academies to senior service colleges, (AFCOM), supports the learning environment. National War College, and Capstone. This spec- The realism of complex contingencies con- trum should be deepened and integrated. Con- fronting U.S. interests daily in the region provides gress had the right concept when suggesting that a rigorous underpinning to the education process. joint education was necessary throughout an offi- A total environment supports this realistic cer’s career. What was not so apparent was the framework. As with combatant commands, the range of personnel who require some portion of Africa Command homepage serves as a daily that instruction. Joint education included in the focal point for staff actions and information service intermediate schools is designated Phase I within its area of responsibility (AOR). Each day JPME. It should in and of itself provide the foun- of the twelve-week course represents 10–12 days. dation for many officers supporting the combat- The homepage keeps students serving on the ant commanders on component or joint task AFCOM staff current on issues and hotspots not force staffs. Additionally, to that educational only in their AOR but around the world. Their spectrum outlined for selected officers’ careers we command’s plans and standard operating proce- must now add opportunities for those enlisted dures are available both within the seminar personnel, civilians, and Reservists of all grades, rooms and on the homepage. These documents as well as officers who might need more prepara- are not shells or outlines as are often found in tion than would normally be forecast by a career military institutions but in most cases are actual pattern Goldwater-Nichols projected for non- plans, modified and kept unclassified to fit the joint specialty officers. We will now examine this learning environment. new spectrum. As students work with the AFCOM materials, While Congress and OPMEP provide detailed they not only ponder the type of documents rou- directives, an integrated education program must tinely produced in joint staff actions but also see have a flagship institution for curriculum devel- an example of what looks right in many types of opment with the teaching expertise and assess- plans and procedures. Thus officers learn the ment skills to make a joint education program vi- processes and decisionmaking skills so critical to able. One institution must provide the core a joint staff while gaining experience with related curriculum for CJCS to ensure that this greater va- products. riety of education and training is focused on ap- Campaigning propriate topics. The obvious choice is Joint Forces Staff College. As a JPME Phase II institu- According to the Skelton Report, “Armed tion, it prepares officers for the joint specialty Forces Staff College should concentrate on case with a joint curriculum along with a faculty and studies and wargames on the combat employ- students equally representing all military department of joint forces.” This intent is seen through- ments. OPMEP has further defined the student al- out a curriculum that provides learning in an in- location as according with the distribution of bil- creasingly complex and integrated environment. lets by service on the joint duty assignment list. As new lessons are introduced, students examine Only through this mix sharing an educational ex- historical or practical experiences to add depth, perience over time can students achieve the level then demonstrate their understanding. They explore the strategic environment and issues relating to national and regional security early in the 76 JFQ / Spring 2002 Antis and Clark Byrd) R. Navy (Jonathan S. U. Preparing for takeoff from USS Theodore Roosevelt,Allied Force. curricular program. At the same time, their Students entering the deliberate planning AFCOM duties require them to address a variety process are confronted with an approved opera- of staff actions and procedures. They gain under- tions plan but diminished resources and a chang- standing of the relationship between regional and ing international scene. This scenario drives a re- national issues and how the Chairman and uni- examination of the entire process and leads fied commanders act within that environment by students to an even greater understanding of the studying the joint strategic planning system and complex decisionmaking skills inherent in it. Mis- joint strategy review. sion analysis and concept development are critical mission analysis and concept After they work the is- in both deliberate and crisis planning. They have sues involved in review- thus been routinely highlighted by CINCs as areas development are critical in both ing a draft joint strategic of emphasis for their action officers. deliberate and crisis planning capabilities plan, stu- These varied taskings, guidance, and recom- dents explore the role of mendations, to include OPMEP and SAEs, are in- service contributions to corporated into an overarching set of objectives CINCs as well as the challenges of componency used to develop more specific learning goals and for the combatant command structure. Case stud- the accompanying assessment. The resulting list ies place the issues of strategy, resourcing, and is known as the 15 academic objectives that command and control in historical perspective. guide curriculum development and assessment Students next explore tools for joint plan- in the Joint and Combined Staff Officer School. ning through a campaigning block. They exam- These objectives stimulated a curriculum update ine operational art as well as the campaign and its while ensuring that the focus remained on key application in historical and contemporary ven- learning areas. ues. They also survey broad topics such as battle- The content of Phase II programs at JFSC en- space management, multinational issues, peace- sures that the officers are educated in the critical keeping, and joint force command. They are areas of joint operations, meeting the Title X re- introduced to processes such as mission analysis, quirement to teach joint matters. To do this most security cooperation, and the theater strategy for- effectively, the curriculum must be maintained mulation as they confront the challenges of ways, meticulously and integrated with a wide range of means, and ends on the combatant command assessment and evaluation techniques. Currency level. Amidst this instruction, practical exercises and evaluation will ensure confidence in the pro- and simulated crises drive students to use mate- gram on the part of both students and the insti- rial and procedures already covered to reinforce tution. and demonstrate their understanding. Spring 2002 / JFQ 77 ■ JOINT EDUCATION F–15s over Saudi Arabia,Southern Watch. Braden) Squadron (Jack munications m Co 1st Opportunities for Assessment A vigorous review program ensures that An absolutely current, focused curriculum is classes are examined for accuracy and currency as critical to JFSC. However, the college must also well as teaching techniques. The college solicits have confidence in the learning achieved in this student comments for selected lessons while fac- dynamic environment. Seminar faculty must be ulty members provide feedback through work- able to relate learning outcomes in the seminar shops and individual initiatives. In each case, the room, the wargame suites, and in the variety of goal is to examine the accuracy of specific mate- off-site environments with JFSC academic objec- rial and how it contributes to overall curriculum tives. Faculty can then provide the best feedback and learning objectives. Finally, the commandant to students. annually asks the combatant commanders in A variety of assessment opportunities are in- chief, as the commanders of the headquarters corporated throughout the twelve weeks. The first where most JFSC graduates report, for their per- is the multiple-choice pretest taken on arrival and ception of the preparedness of graduates as well as focusd on knowledge/comprehension in three ob- for suggestions and priorities. This response is in- jectives relating mostly to Phase I. After the first corporated into the annual review of curriculum. portions of the curriculum are covered, an essay Thus the college ensures that the tone and timbre exam demonstrates individual understanding of of curriculum change meets the needs of the pri- course objectives as opposed to the group efforts mary customers, the combatant commanders. shown through exercises and simulations. Follow- Students can also give feedback in other areas ing the deliberate planning process block, a short of this process through faculty-rating and a survey answer essay exam assesses other academic objec- at the end of the course that treats curricular, pol- tives and shows where reteaching is necessary. An icy, and procedural areas. While student opinion examination at this point also allows use of the is useful to curriculum planners, the college em- Capstone exercise as a means of individual reme- ploys a sophisticated outcomes assessment strat- diation or of reinforcing learning objectives for egy to determine what graduates can actually do the entire seminar. with their educations. The objective and essay ex- aminations, testimony from commanders in chief in the field, and refinements in the officers’ abili- ties to operate in their new joint environment all provide evidence of student learning. 78 JFQ / Spring 2002 Antis and Clark Patrolling at Kandahar Airport. Banks) Pacific (Ted Group, mera Ca mbat Co Fleet Beyond efforts to increase academic rigor in It provides the focused curriculum, joint faculty the core curriculum, JFSC continues to refine and and students, rigorous education, and assessment expand its Focus Study, or elective program. For mandated. It must be seen as the benchmark for ten weeks, students spend one afternoon per joint education. week taking four hours of electives, which usually Needed now is a true spectrum. Some Re- consist of two twenty-hour courses, although five servists, DOD civilians, noncommissioned offi- week, ten-hour sessions are offered. Some elec- cers, and junior officers work in support of CINCs tives detail the global command and control sys- and JTFs with only a limited requirement or op- tem or joint targeting skills while others cover portunity for joint education. At the other ex- broader topics such as ethics within the joint en- treme, a case might be made for more intense vironment or war in the 21stcentury. At the same joint instruction akin to the School of Advanced time, officers en route to combatant commands Military Studies at Fort Leavenworth or School of or assigned to one for less than six months must Advanced Airpower Studies at Maxwell Air Force take a course introducing the issues within their Base for officers en route to duty as key planners respective areas of responsibility. on combatant command staffs. High on the spec- Indicative of the new stringency in teaching trum is the education JFSC provides for joint spe- and assessment, the college is now recognized as cialty officers. a substantial graduate level institution. Universi- The three-day Joint Planning Orientation ties nationwide are establishing agreements for Course (JPOC) was the only alternative to longer, academic recognition of the JPME Phase II pro- more formal courses in earlier years. Thus this gram. The potential for substantial credit from course has been a heavily subscribed mobile in- civilian institutions may lead individuals to seek struction program, conducted by teams from the further education on their own time. JFSC faculty who visit combatant commands and other active and Reserve organizations annually. Both Ends of the Spectrum For junior officers, NCOs, and civilians on a com- With its emphasis on the combatant component headquarters staff that might occasionally mand and JTF level, JFSC instruction hits the support a JTF, a minimal orientation to joint op- mark identified by Congress and the Chairman. erations may be sufficient. Hardly intensive joint education, such introductory training might provide only what is needed to improve command Spring 2002 / JFQ 79 ■ JOINT EDUCATION C–17 being unloaded at Kandahar Airport. Banks) Ted Group ( mera Ca mbat Co Fleet readiness. At the same time, Reservists in an or- A JPOC level of instruction might suffice for ganization augmenting the staff of a unified com- many NCOs. Such teaching could be integrated mand might need a similar level of instruction, into existing schools. Where an NCO needs the while those earmarked for the staff of a combat- instruction and it is not readily available, a JPOC- ant command or as part of the JTF planning like course could be provided online focusing on group might need more. learning objectives and made similar to face-to- A Reserve component program recently de- face instruction. veloped by JFSC, while extensive in time and Woven throughout the above levels of joint cost, provides a joint experience similar to the education is the need for a system of lifelong Phase II program at JFSC without 12 weeks in res- learning. Incorporating these new curricula with idence. Acculturation may distance learning could offer solutions. For ex- distance learning would likely be difficult to obtain be- ample, a selection of distance learning courses cause the majority of les- might help personnel involved in joint opera- be equal or superior to what sons are accomplished by tions to maintain their particular skills and de- resident students gain distance learning, but the velop new ones. As long as the instruction relates nature of distance learning to the joint matters dictated by Congress and the is such that knowledge, comprehension, and ap- Chairman and are incorporated into the JFSC plication levels would likely be equal or superior curriculum, the college can provide the founda- to what resident students gain. Such a program tion for curriculum development in this ex- would satisfy the congressional mandate of sec- panded joint spectrum. tion 666, Title X of the U.S. Code, which directs Many of these programs exist or are under that the Secretary of Defense will establish per- development. What is lacking is their integration sonnel policies for Reserve officers to prepare into a holistic view that ensures that each service- them for joint duty and that “such policies member and civilian employee receives the right shall...be similar to [that portion of Title X that education or training at the right time in their ca- establishes policies for managing and educating reers to carry out assigned duties. Combining joint specialty officers].” these programs as conceptualized above could en- hance individual and unit readiness. It could also ensure that DOD leads transformation rather than being driven by it. The personnel manager 80 JFQ / Spring 2002 Antis and Clark officers, enlisted personnel, and civilians into the joint planning and decisionmaking environment. The JPME structure only considers a portion of the officer corps despite this greater requirement. Opportunities must increase. JFSC must remain the premier school in joint operational-level warfare and in preparing joint specialty officers. From this flagship institution the other needs of joint force commanders can be addressed. A variety of short training programs, both online and by means of mobile training teams, can provide broad overviews for those enlisted, civilian, and officer personnel primarily Claude J. Troullier) wDcparioinsort karp inntrcooge v ailineud agesrmu nRpieenpnsgoet ririntvn goits eftt gsthrh aewet eicjtdooh imw ncbtirt aifhtoti arrcnceaestl i cdcpoeormnemptm mapraeaanrntidoidoedenrsr. Navy ( and his subordinate headquarters. Along with S. new technologies, it may also contribute to a life- U. long learning environment. U.S.and Korean officers,Enduring Through OPMEP and SAEs, CJCS ensures Freedom. that all institutions are focusing on timely topics. faces the greatest difficulties in implementing He ensures through his accreditation process that such a system. Duty positions in joint, service, the curriculum is rigorous and complete in and defense agencies would need to be coded for preparing officers as joint force commanders. The the level of joint training or education they re- ability to maintain readiness for today’s urgent quire. Personnel movements and training/educa- and ongoing operations should be integrated tion opportunities would then need to be with the intellectual flexibility to prepare and ex- matched. The case of JFSC demonstrates that ecute transformation for the future. The remain- both must work in synch. Despite the clearly-de- ing question is whether we have the vision and fined need for well-trained officers in joint posi- desire to take the opportunities before us and pro- tions, the college routinely has empty seats in vide our personnel the skills they need to best each class due to the mismatch of personnel to serve the Nation. JFQ positions. Finally, the level of education or training an individual obtains must be tracked. Over NOTE time, monitoring would minimize the need for new schooling and would only be needed exten- 1Henry H. Shelton, “Professional Education: The sively for a first joint assignment or in a transfer Key to Transformation,” Parameters, vol. 31, no. 3 (Au- tumn 2001), p. 15. to a position calling for more education. Greater flexibility would eventually be provided to personnel managers with a wider and more focused variety of joint education opportunities and a large pool of servicemembers with the requisite background. The need for joint professional military education is growing even as the call to minimize time away from duties increases. DOD leadership must resist the temptation to limit education. The range of joint education envisioned by Con- gress must be expanded. The elements in place must remain. Critical aspects of education are being accomplished from pre-commissioning through the senior service colleges and Capstone. At the same time, the growing challenges of combat operations and the wide variety of contingency operations bring many additional military Spring 2002 / JFQ 81