DTIC ADA524982: Developing Joint Education for the Total Force

6 Pages·0.55 MB·English

by  Defense Technical Information Center

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for the Total Force
By J O H N B. D R I S C O L L
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oint professional military education (JPME) combatant commanders, and services. Their rec-
develops leaders, a key ingredient in unify- ommendations underpinned a report to Congress
ing doctrine, technology, organization, and on educating Reserve component officers in joint
culture. In early 1998 the Chairman of the matters. This article describes how the general
Joint Chiefs of Staff initiated an effort entitled outlines of a new JPME system have emerged
”Joint Professional Military Education 2010” to from these recent actions.
update and upgrade JPME. It tackled a number of
critical issues. During the first phase, require- Challenging the Total Force
ments and technology teams confirmed the need Today a greater number of Reservists are
for change and existence of available technology being deployed to contingencies worldwide. One
to assist in this process. In the second phase, a study found that 4,400 of the duty positions held
course of action development team began transi- by Reserve officers in grades O4 to O6 need joint
tional discussions involving the Chairman, education. Of these, 1,200 need advanced instruc-
tion. War plans project requirements for another
2,200 joint duty positions for members of the Re-
Colonel John B. Driscoll, ARNG, is assigned to the Military Education serve components.
Division, Directorate for Operational Plans and Interoperability (J-7), Although the demand is increasing, the chal-
Joint Staff. lenge of providing joint education to Reservists is
Spring 2000 / JFQ 87
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Developing Joint Education for the Total Force
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(cid:2)
JOINT EDUCATION
nothing new. Their lack of access to JPME oppor- The three months on temporary duty for
tunities has drawn attention from Congress. In JPME by active component officers is particularly
fact, the Goldwater-Nichols Act specifically di- contentious. Interviews conducted with students
rected that: revealed that over half attended AFSC after serving
in joint duty positions for a year or more. In addi-
The Secretary of Defense shall establish personnel
tion, long periods away from duty positions in-
policies emphasizing education and experience in
creased the strains of operational tempo and de-
joint matters for Reserve officers not on the active
tracted from unit readiness. Finally, despite the fact
duty list. Such policies shall, to the extent practicable
that officers are uprooted to attend educational
for the Reserve components, be similar to the policies
programs, after action reports indicate that joint
[for the active component].
headquarters are not sufficiently staffed by officers
Despite this legislative initiative insufficient ad- who have met joint educational requirements.
vances were made over the last decade. In 1998 Another downside of the current system is
the House National Security Committee directed the lack of appreciation for the growing impor-
CJCS to report on progress to establish a mid-ca- tance of joint task forces which are employed op-
reer JPME course. Citing inadequate preparation erationally on all levels. This is best taught by
of Reservists for joint duty, the committee di- emphasizing JTF doctrine during the primary
rected development of educational opportunities phase of officer development. In addition, a
similar in content to the resident programs of menu of so-called just-in-time modules could be
the Armed Forces Staff College (AFSC) for active built on this foundation through various resi-
duty officers. dent, nonresident, distributed, and distance
This congressional concern is backed by the learning techniques. In short, the requirements
conclusions of the JPME 2010 requirements team, team confirmed that a seamless, flexible JPME
which found that service participation in joint or- system is needed for officers from pre-commis-
ganizations and opera- sioning to the general/flag level.
current doctrinal changes are tions is now part of the Current joint doctrinal changes and the
experience of Reserve offi- transition to Joint Vision 2010 are driving the
driving the need for deepened cers, although JPME is need for deepened and broadened joint educa-
and broadened joint education not. This is because the tion. The requirements team found in particular
services fill their quotas at that the full array of joint, multinational, and in-
AFSC to qualify active teragency competencies require a “much richer
duty personnel as joint specialty officers. The re- joint educational and training regimen.” Emerg-
sult is that Reservists are excluded from the three ing joint operational art calls for an effort on a
month course at the college. In addition, Reserve par with staff college education and more intense
officers are finding that increased operational than the current Joint Combined Staff Officer
tempo, service PME requirements, and the de- School at AFSC.
mands of their civilian jobs make three-month
active duty courses unrealistic. In sum, the oppor- The Next Move
tunity for Reservists to pursue joint education has
In considering joint education, the course of
been declining.
action team sought the views of the Military Ed-
Any education intended for the Reserve
ucation Coordination Conference (MECC),
components must be presented in a format that
which includes representatives of each profes-
can be accomplished during two-week active
sional military education institution. The initial
duty tours and/or weekend drills. A nonresident
course of action intentionally did not consider
course which combines distance learning and pe-
resources. Remaining open to all possibilities dra-
riodic face-to-face interaction in a group setting
matically enhanced the dialogue on JPME im-
is needed in order to replicate the level of joint
provements. After long consideration the phase
acculturation and competency achieved in resi-
II team recommended:
dent programs.
(cid:2) recasting JPME as a set of joint, multinational,
Meanwhile, active component officers as-
and interagency competencies
signed to joint billets also face a perplexing set of
(cid:2) reforming joint officer management
challenges. They are uprooted from joint assign-
(cid:2) investing in a joint virtual learning environ-
ments for three months of temporary duty to ment with a hub for distributed learning and CINC
meet joint education requirements at AFSC. In joint learning centers
residence they encounter a curriculum with dis-
connects and redundancies in joint matters
taught at service colleges. Also, JPME programs do
not fully provide the competency to master the
demands of interagency operations.
88 JFQ / Spring 2000
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Driscoll
Army Reservist
in Albania during
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(cid:2) creating a two month en route summer school SAJE. CINCs were concerned over the competi-
before joint duty tours tion for faculty, students, and resources. There
(cid:2) developing a pilot project to test new initiatives was a general reluctance to operate another col-
(cid:2) establishing a joint center of excellence in oper- lege that keeps officers from duty assignments for
ational art at AFSC with a resident joint intermediate
another year.
staff school (JISS) and a resident school for advanced
The overlap between military training and
joint education (SAJE)
education—and the friction between institutional
(cid:2) developing a robust nonresident JPME capability.
prerogatives and operational imperatives—is a
CINCs provided a valuable critique of the ap-
cause of dispute. U.S. Joint Forces Command, for
proach recommended by the phase II analysis.
instance, which administers a center of joint op-
They supported the addition of multinational
erational excellence, objected to designating
and interagency competencies, reform of joint of-
AFSC as a center of excellence in joint opera-
ficer management, introduction of advanced dis-
tional art.
tance and virtual learning, and creation of a two-
All CINCs, however, argued for mandatory,
month summer school for officers bound for
standardized joint education modules across the
joint duty positions. Moreover, they condition-
services, and they wanted to ensure that officers
ally endorsed a pilot project, CINC joint learning
meet similar standards prior to assuming joint as-
centers, and establishing a distance and distrib-
signments. They also wanted flexibility, with joint
uted education hub for joint operational art.
education modules available to all personnel at all
However, in contrast with the course of action
times. As part of a larger curriculum, they sup-
team and MECC, they favored full joint educa-
ported developing modules that could be used
tion taught at each of the service colleges. Nei-
from the joint duty location to provide regional
ther CINCs nor the MECC team advocated JISS or
and functional knowledge unique to the duty
tour. The vision drawn from CINCs was a system
in which individuals might enhance their joint
Spring 2000 / JFQ 89
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(cid:2)
JOINT EDUCATION
poor. Competent teachers and curriculum design
are essential.
The proposed JOS should free resources. Plac-
ing students in 300 seats for three months three
times a year at AFSC requires at least 210 officer-
years from the military departments. In contrast, a
60 military member JOS student body will cost
only 60 officer-years, saving $12 million annually.
Temporary duty and travel funds paid out for 900
servicemembers attending the AFSC short course
have exceeded $5.4 million. If, for example, 650
could complete full JPME while still in their serv-
ice colleges, the savings in service temporary duty
and travel funds would be $3.9 million.
Based on the potential of distributed educa-
S. Block) tinioqnu,i rCy JConS rReesspeorvned ecdo mtop oan reencte nedt uccoantigorne spsiooinnat-l
Henry ing out that JPME for Reservists was being ad-
mpany ( dcaretisosend pinro tcheess b. rForaodmer nmoowd eornn,i zaacticoonrd oinf gth teo e tdhue-
Co
Signal Rfeespsoiornt atlo MCiolnitgarreys sE dounc aRteisoenr,v eJ PCMomE pwoonuenldt Jionitnetg rPartoe-
55th the joint military education of Reserve with ac-
Army Reservist in
tive duty officers.
Bosnia,Joint Forge.
[Reserve component] JPME should enjoy a similar
knowledge as needed as well as conduct research.
degree of support [as active component JPME]
Commanders believed that with some changes
through the proposed [Reserve] pilot program, which
undertaken by the National Defense University at
will be the catalyst for implementing remote learning
AFSC, the appropriate content for these modules
for joint staff officers across the total force....
could be coordinated. They argued that intermedi-
A distributed learning framework will help de-
ate and senior level colleges should graduate offi-
velop common distance learning for both active
cers who are fully educated in joint matters by
and Reserve component officers.
providing them with access to accredited joint
Senior faculty at AFSC have also developed
learning modules. They also wanted officers to
and tested a joint planning course to respond to
complete both phase I and phase II of JPME on
the congressional requirement for similar educa-
one set of orders.
tion for Reservists. The two week pilot curriculum
Moreover, CINCs took the report to task on
consisted of three primary instruction blocks. The
the quality of joint education. Although they be-
first surveyed deliberate and crisis action planning
lieved the JPME 2010 system should
processes and reviewed service and component ca-
complement service education re-
faculty at AFSC have
pabilities. Second came hands-on experience with
quirements, they insisted that it ex-
developed and tested ceed service standards. They wanted the joint operations planning and execution sys-
tem. This familiarized the class with tools to sup-
a joint planning course content of joint education to be up-
port force deployment. Third, students walked
graded to enhance analytical skills,
for Reservists through a crisis deployment exercise, facilitating
build joint culture, elucidate multi-
critical thought and constructive dialogue.
national and interagency competen-
Thirty active and Reserve component per-
cies, present electives in addition to a concen-
sonnel in grades E6 to O6 received the joint plan-
trated core education, and incorporate a joint
ning course, completed extensive measurement
task force wargame.
instruments, and recommended improvements.
The Pilot Program Both functional and substantive elective modules
might eventually be linked through a coordi-
The Chairman accepted the notion of full
nated educational system to a common core.
JPME in service colleges and converted the JISS
When greater competency is needed in a specific
and SAJE proposals to a single 9–10 month joint
area, for example, students could devote more
operations school (JOS). Here, the first priority
time to an appropriate elective module.
will have to be developing in-depth faculty ex-
pertise in joint operational art and education.
CJCS acknowledged that distance and distributed
education fails if course content and design are
90 JFQ / Spring 2000
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Driscoll
Based on this experience and CJCS objectives Both distance and distributed learning will
for joint education, AFSC has proposed a course increase the quality and quantity of education.
of 110 hours of advanced distributed learning The evolution to virtual classrooms, however, will
and 130 hours of classroom instruction that Re- require a concerted effort. To succeed, distance
serve component officers could accomplish dur- and distributed teaching of JPME 2010 will have
ing drill weekend and a two week active duty to look, resemble, and in fact be better than what
training period. Implementation of this curricu- is accepted as JPME today.
lum should begin next summer and, depending The naval services have a particular chal-
on availabilty of resources, be phased in over the lenge in addressing expanding JPME require-
next two years. ments. The education of 3,100 more officers an-
JPME 2010 also found that joint education nually in joint matters requires the Navy to
for general/flag officers required updating. The increase staff college and joint operations school
Capstone course at the National Defense Univer- attendance. Navy and Marine Corps officers who
sity in collaboration with the Joint Warfighting complete staff colleges must have a joint educa-
Center (JWFC), an element of U.S. Joint Forces tion in order to match Army and Air Force offi-
Command, planned and rehearsed a three-day cers. Virtually linking officers through distributed
module that puts senior leaders through a JTF life learning clusters, as well as resident seminars at
cycle: forming, planning, deploying, employing, staff colleges and the joint operations school, is
transitioning, and redeploying. Capstone course one way to achieve such a balance.
senior fellows and JWFC team members with the Joint education for noncommissioned offi-
support of a state-of-the-art joint training, analy- cers also must be addressed. Some 2,200 men and
sis, and simulation center, conducted the re- women in the grades E7 through E9 support the
hearsal. Through this new module, senior leaders Chairman, CINCs, and standing JTFs, and more
discover critical JTF commander issues in each serve in contingency JTFs. They need knowledge
phase of a scenario. The process drives home about the cultures and capabilities of other serv-
learning objectives with the use of plenary groups, ices and techniques for mentoring the soldiers,
academic seminars, small group exercises, plenary sailors, marines, and airmen entrusted to them.
back briefs, and facilitated discussions. Such ef- They also require a better understanding of joint
forts are designed to build on competencies being force packaging and joint command and control.
developed in pilot programs, creating a contin-
uum of joint education from the junior officer to A seamless JPME system must be imple-
senior leadership level. mented within the context of a new joint per-
sonnel environment. The leaders of joint multi-
The Way Ahead
national and interagency military operations will
The debate over the course of action pro- come from a large pool of individuals educated
posal, the examination of numerous resource in joint matters rather than from the current in-
combinations, and the early outline of a pilot termittent stream of officers and noncommis-
program have marked an important transition. It sioned officers. JFQ
is already clear that the law must be changed to
allow AFSC to teach distance and distributed
JPME curricula. Similarly, PME standards will
have to reflect the central role of distance and
distributed education. Resources will come partly
from reprogramming manpower and funding,
partly from collaborating with the current pro-
gram centered infrastructure, and additionally
from coordinating resident and distance educa-
tion from the entire system. Implementation will
proceed indefinitely and require constant collab-
oration among services, components, and the
joint community at large.
Spring 2000 / JFQ 91