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Across all types of equipment, leadership rushes repair jobs or seeks out the easiest fix, undermining long-term serviceability and sometimes further damaging the equipment in the process. Though there is much to be said for earning one’s place, ideas expire with time, and many exit the profession of arms before entering positions of influence in search of a more enterprising culture. Journal of Military Learning Submission Guide, Future Warfare Writing Program Submission Guidelines, Military History Instruction Support Team, 290 Stimson Ave. A second obvious objection to unit partial authorship of either MTOE or pacer designation might read as follows: every unit setting its own standard reduces the term “ready” to something just shy of meaningless as each unit proffers its own (perhaps self-serving) definition. In it, Scott relays among many examples the challenge Napoleonic France faced as it sought to standardize myriad local measurement codes: “Either the state risked making large and potentially damaging miscalculations about local conditions, or it relied heavily on the advice of local trackers—the nobles and clergy in the Crown’s confidence—who, in turn, were not slow to take full advantage of their power.”23 Scott notes attempts to strike the balance, such as those by Deputé Claude-Joseph Lalouette, failed to win requisite support for fear of too empowering the landowners.24 This concern does not apply to the question of readiness reform, for instead of thousands of landowners with ulterior motives, the Army needs to only solicit input of several dozen BCTs supportive of its mission. The reform, not the scrapping, of reporting metrics and structure, promises a reduction in goal displacement, short-termism, innovation aversion, time burdens, and degradation of work. It provides policies and procedures for private organizations operation on Department of the Army installations. Company Leaders’ Estimates of Personal Time Devoted Per Quarter to Job Tasks (Figure from RAND Corporation, Reducing the Time Burdens on Army Company Leaders, 2019, https://www.rand.org/content/dam/rand/pubs/research_reports/RR2900/RR2979/RAND_RR2979.pdf) 2. As the organization solicits input and metrics of performance acquires meaning, work regains its esteem and morale increases. Goal displacement abounds in the measured area of equipment on-hand (S-level) as well. The risk of innovation lessens, and innovation’s long-term benefits assert themselves. REAL: Readiness Essentials for Army Leaders: This is a collaboration of efforts and best practices from SFRG Leaders, Family Readiness Support Assistants, Command Teams and Army Community Service throughout the Army, to include active duty, National Guard, and Reserve. The Army would thus have to maintain a high but passable bar for what equipment supports only existing mission essential tasks. Not only does this produce an inaccurate report, but it also confuses maintenance. It comprises four measured areas: personnel (the P-level), equipment on-hand (the S-level), equipment readiness (the R-level), and the unit training proficiency (the T-level) (see figure 1 and figure 2). § 117(a)(1)–(3) (2011), accessed 3 June 2020, U.S. Government Accountability Office (GAO), “GAO Highlights,” in, Robert K. Merton, “Bureaucratic Structure and Personality,”, W. Keith Warner and A. Eugene Havens, “Goal Displacement and the Intangibility of Organizational Goals,”. AR 525–30 Army Strategic Readiness This new Department of the Army regulation, dated 3 June 2014-- o Institutionalizes the fundamentals of Army Strategic Readiness (throughout). According to regulation, for a piece of equipment to be fully mission capable, it must pass a “preventative maintenance checks and services” inspection without failing a single “not ready if” bullet. The system of readiness reporting dismisses individual judgment in favor of metrics so much that all agency, informed by integrity or any other Army value, dissipates. * Establishes the family readiness group as an official Army program, established in accordance with AR 600-20, to provide activities and support that encourages self … A maintenance section in an armored formation, for example, might report only a single inoperable tank despite several others being broken. Any system “shall measure in an objective, accurate, and timely manner.”4 The verb of choice in this sliver of code is “measure,” trotted out no fewer than seven times over two paragraphs. 1 Research has shown the following: 56% of Soldiers in 2017 were diagnosed with a new injury. “Mutual trust” fails. Permitting divisions or brigades some role in the authorship of their MTOEs would better marry MTOE materiel with the needs of the unit. Army AL&T editors discussed readiness with Dillard and Jones in a July 11 phone interview.Dillard referred to "Army Regulation [AR] 220-1, Army Unit … Similar to the tank example above, battalion maintenance sections cannibalize long-suffering vehicles in order to repair newly downed pacers before the reporting windows close, resulting in what the aviation community calls “hangar queens”—sacrificial vehicles used as spare-part trees. Some units go even further to avoid an unbecoming R-level, displacing maintenance (and therefore readiness) in the process. endstream endobj 1636 0 obj <. In view of the above, Army Regulation (AR) 220-1, Army Unit Status Reporting and Force Registration—Consolidated Policies, endows the USR with an unsurprisingly quantitative structure. Army Regulation 525–93 . Such cannibalized vehicles or other pieces of equipment are sometimes used to skew unit readiness reporting requirements and mask unit logistical and materiel deficiencies. Army Methodology for Overall Unit Readiness Assessments (Figure from Army Regulation 220-1, Army Unit Status Reporting and Force Registration—Consolidated Policies, 15 April 2010, https://armypubs.army.mil/epubs/DR_pubs/DR_a/pdf/web/r220_1.pdf) As units and their commanders acquire more influence over what the Army deems essential, they may functionally invent mission essential tasks to warrant desired widgets, bringing at times anomalous personal experience in contest with doctrine. Only strict standardization renders the force legible, whether to the Pentagon or to Congress. o Contains extensive information regarding Army Strategic Readiness and how it is reported, prepared, reviewed, and submitted (throughout). Ready and Resilient (R2) is the Army's strategy for strengthening individual and unit Personal Readiness and fostering a culture of trust. The result is an army of highly reactive, chaotic maintenance programs and duct-taped fleets. This regulation prescribes the purpose, policies, procedures, and responsi- bilities for planning, preparing, executing, and assessing Army Strategic and Opera- tional Readiness. Enlarge the figure, Muller explains metric fixation as the overreliance on transparent, quantified measurements to capture and incentivize an organization’s performance; it is also the persistence of this overreliance despite myriad negative consequences. It establishes procedures for conducting a Soldier Readiness Program (S RP), in order to process soldiers and Department of the Army civilians for deployments/movements under the SRP. Amidst all this short-termism, “recovery” becomes something of a four-letter word. Units delay reporting because it reduces the amount of time the vehicle is deadlined, thereby decreasing the likelihood it is deadlined during a USR reporting window. This regulation provides information on medical deployment determinations and in-dividual medical readiness elements. 2. The issue is that pacer OR rates are poor indicators of readiness and not just because serviceability rates lend themselves to manipulation. Antiquated encryption tape readers remain while desperately needed high frequency radios or infrared optics disappear. The U.S. code, having defined readiness, outlines how it ought to be reported. This approach enjoys the dual advantages of preempting the defensiveness Wong and Gerras encountered and more credibly promising results. Army OneSource is a single web portal providing important, credible and up-to-date information in one location for Army Soldiers and Family Members to access at any time of day, regardless of component or geographical location. Even worse, units will not turn in irreparably broken equipment (a process known as “coding out”) for fear that the loss will drop them below the MTOE-prescribed quantity, opting to retain unserviceable property and thereby precluding the fielding or even requisition of a functioning replacement. A first step toward this end would be to better incorporate the judgment of reporting leadership, those closest to the capabilities of their formations. In a series of articles this past summer, Gen. Stephen Townsend and his three coauthors called for a reinvigoration of mission command, the Army’s allegedly faltering approach to command and control. But inevitably, well-meaning authors of MTOE at Training and Doctrine Command (TRADOC) as well as the approval authority at the Deputy Chief of Staff G-3/5/7 office either include too much or too few of any given item in view of the unit’s assigned mission. This distrust is not lost on those soldiers, and it invites them to respond in kind. This sanitized approach obfuscates the manipulation that can and does occur to ensure these basic fractions yield figures between .9 and 1.00. In 2011, Congress established the readiness reporting requirement and defined readiness in the first paragraph of 10 U.S.C. The commanders and staff chase readiness as the USR measures it, often at the cost of actual readiness. : Army Readiness Guidance; Subscribe to STAND-TO! The impetus to explore the USR’s shortcomings comes from my experience working twenty-four months as a troop executive officer. Goal displacement in the measured area of equipment readiness (R-level) occurs as battalions grow more concerned with reporting equipment serviceable, such as vehicles, than with fixing equipment. The perversion of maintenance that results is a familiar story to anyone who has worked in an Army motor pool. Musculoskeletal (MSK) injury is the leading cause of medical non-readiness in the Army. 23 October 2019 . The massive effort units expend to reach the highest levels of readiness on USRs would therefore more efficiently ready them. This reporting labyrinth obscures what anyone who has compiled a USR knows: unit status reports are deeply flawed. The goal of a high S-level displaces the goal of a well-equipped unit. But the price of that due diligence is at times one, if not several, unfavorable USRs, and units are too often unwilling to pay. To view Army Regulation 220-1, Army Unit Status Reporting and Force Registration—Consolidated Policies, visit https://armypubs.army.mil/epubs/DR_pubs/DR_a/pdf/web/r220_1.pdf. Capt. Muller defines short-termism in The Tyranny of Metrics as “diverting resources away from their best long-term uses to achieve measured short-term goals.”14 And because USR reports recur for battalions monthly, they disrupt long-term strategies for the maintenance, acquisition, and retention of equipment in pursuit of a good monthly read. The dearth of innovation at the top of the Army’s food chain has received due attention, perhaps most famously from former Lt. Col. Paul Yingling in a 2007 article.18 But metric fixation so deadens innovation at the tactical level that it is no surprise little rises to the level of strategy. The Army Readiness Assessment Program is a web-based initiative designed to help commanders understand and evaluate their unit’s safety climate and culture. Most obviously, the fragility and frequency of the USR discourages innovation, or “disciplined initiative,” and its twin, “risk acceptance,” that might otherwise increase readiness. To critique metric fixation is not, as Muller repeatedly disclaims, to protest the use of metrics altogether. These monthly campaigns see much-needed equipment transferred off the property books while supply teams bloat books with obsolete or unused equipment in order to meet MTOE quotas. The accessibility of hard numbers and their simplicity render the military’s sprawling bureaucracy manageable. to learn about the U.S. Army initiatives. Put another way, it promises a reinvigoration of mission command. Enlarge the figure. The Army Regulation that governs all Soldier and Family Readiness Group operations is Army Regulation 608-1, Appendix J. For example, a battalion may have twenty anti-tank vehicles, all of which are pacers, but only two command-and-control vehicles, neither of which are pacers. And all of the above empower leaders and soldiers within reporting units. The resultant amalgam of definitions cripples the military bureaucracy’s ability to manage. It starts in the unit area.”16 In doing so, they echoed the chairman of the Joint Chiefs of Staff, Gen. Mark Milley, who in 2017 called for mission command’s practice “even on daily administrative tasks you have to do in a unit area.”17 Unfortunately, the USR, perhaps the Army’s most quotidian administrative garrison task, plays something of a perfect foil to mission command. The various forms of appeal, whether an “operational needs statement” or a “reclamation,” prove so cumbersome and lengthy that staffs rarely pursue them except in the direst cases. It is the work of real readiness. The purpose of recovery becomes to report it complete, and all the while, units grow weaker. Battalions, desirous of reporting themselves ready, consequently prioritize pacer maintenance. Leadership routinely forgets which widget was ordered for which unreported tank, resulting in redundant orders, lost parts, and inevitably, toothless tank companies. The Army has undertaken a variety of efforts since 2016 to prepare for potential large-scale combat operations against major adversaries. Because maintenance sections are often stretched for time, vehicles that cannot roll or start at all are reported for weeks if not months as serviceable simply because their issues have not yet been diagnosed. The denominator for equipment on-hand is what the Army has decided that a reporting unit must have, recorded in what is formally known as the modified table of organization and equipment (MTOE). Fort Leavenworth, Kansas 66027 But because pacers enjoy disproportionate weight in the USR, any self-interested battalion prioritizes the maintenance of the twentieth pacer over the first command-and-control truck. (Photo courtesy of J. VanDomelen, https://blogs.mentor.com/jvandomelen/blog/2011/12/28/power-problem-what-now/), From March 2018 to November 2019, the Department of Defense Office of the Inspector General conducted an audit of the U.S. Army’s active component readiness. Meanwhile, armament sections learn not to order parts for broken machine guns until after USR reporting windows close, delaying weapons repair by months to avoid flagging them as inoperable. Currently, TRADOC, in coordination with the Deputy Chief of Staff G-3/5/7 office, identifies pacers and accounts little for the nuanced relationship between equipment and units’ assigned missions. Leaders must document catastrophic damage, officers investigate it, logisticians review it, and property book officers direct replacements. 10 U.S.C. Staffs will in turn direct battalions to give away needed equipment that will soon be on their MTOE simply because in that month the item is technically excess. This process cuts out the ordering of new parts altogether. Similarly, to decry the pernicious effects of the USR is not to deny the need for readiness reporting and the use of metrics toward that end. Army Readiness Guidance 2016-2017; Army Regulation 525-30, Army Strategic Readiness; Related STAND-TO! A leader with more time in the driver’s seat similarly plans for the longer term. Units dedicate time and effort to acquiring items they do not need in order to meet MTOE quotas, even with the knowledge that the obsolete equipment will fall off the MTOE the following fiscal year. Department of Defense Inspector General (DODIG). Subject memorandum directed the U.S. Army Concepts Analysis Agency to develop an expert system to advise on the assignment of equipment readiness codes (ERC). Untested methods, whether a change to motor pool management or an alternate approach to equipment distribution, enjoy a slim chance of fruition as they threaten USR calculus month to month. How to negotiate a balance between the dual risks of harmful standardization and unmanageable chaos is explored deeply in the book Seeing Like a State by James C. Scott. A less frequent USR disrupts long-term planning less frequently. Applicability. When handled properly, issues identified during recovery take weeks if not months to resolve. The US Army’s premier multimedia organization that focuses on advancing the ideas and insights military professionals need to lead and succeed. The imperative to quantify readiness does not find a mandate in code alone. The Army defines readiness as the capability of its forces to conduct the full range of military operations, including the defeat of all enemies regardless of the threats they pose. åܛw眉?+¶œs.µƒ¡£¡ˆ: l&° ”àè #0)‚HÂccMý40A@åfbpH¿fàa`Ú¨3ÁrÚ'Ï-i ¡l÷ŸàÈáVÒ¹Á2@š‡Áñ*XœùªfX±'@€ Úlz 3. Publication Number: AE REG 600-8-101 Publication Date: 6/9/2008 Title: Army in Europe Soldier Readiness Program Status: CURRENT Unit of Issue (U/I): WEB Security Classification: Agency: USAREUR Proponent: Office of the Deputy Chief of Staff, G1 Prop Office Symbol: PIN: 1000325 Web Footnote: Authorization for Obsolescence: 6/9/2008 The frequency and high stakes of USRs demand of battalion and brigade staffs days of data compilation that might otherwise be spent planning training. Its metric fixation asphyxiates several of mission command’s core tenets: disciplined initiative, risk acceptance, mutual trust, and shared understanding. Often, under pressure to produce short-term results, commanders undermine or outright dismantle systems designed to sustain readiness in the long view because those systems do not move at the speed of the USR. The numerator is what appears on the unit’s property books; it is a digital record of equipment existent for that unit.8, The denominator for equipment readiness is what is on hand, and the numerator is the quantity tracked as “fully mission capable” in the Army’s digital maintenance records. Search: View Section 508 Version. Short-termism. There is no great advantage to monthly reports but many costs, only some of which have been discussed. Check it out. With the exception of the T-level, the same basic math governs all: divide what the reporting unit has (whether number of medics or number of serviceable grenade launchers) by what that unit ought to have. Dear Editor, When Soldiers transport small arms to the shop for maintenance, they need to follow the guidance in AR 190-11, Physical Security of Arms Ammunition, and Explosives (Jan 19). Upon receipt of the repair parts, the maintenance leadership divvies them up to the many other inoperable but unreported vehicles. It is in these measured areas where the USR is most rigid and quantitative, and it is where the metrics chosen least reflect the outcome that the report aspires to measure. In pursuit of a high S-level, units forsake actual equipment needs for a good report. This signals strongly to me that these issues are unfortunately not limited to a single formation. To reduce goal displacement, one must close the gap between the stated goal of readiness and the metrics used to measure it. Enlarge the figure. tional Guard are governed by regulations issued by the Chief, National Guard Bu-reau consistent with Chief, National Guard Bureau’s authorities under 32 USC 110, 10 USC 10503, and DoDD 5105.77. The reports do so because they demand inflexible quantitative measurements unfaithful to the outcome they purport to depict—how ready a unit is to accomplish its mission. If we take readiness to be the Army’s number one priority (or goal), then goal displacement is the most pernicious consequence of the USR as it definitionally displaces readiness. The bedrock of Army morale—the nobility of its mission—crumbles as the mission is reduced to a series of reported fractions. Recall that S-level measures what equipment units have on hand against what the MTOE dictates they should have. Yes, the Army could use more low bed semitrailers, towed-howitzer telescopes, and electromagnetic spectrum managers. As George Kennan wrote in 1958 when discussing the expanding administrative state and its managerial malaise, The premium of the individual employee will continue to lie not in boldness, not in individuality, not in imagination, but rather in the cultivation of that nice mixture of noncontroversialness and colorless semicompetence that corresponds most aptly to the various banal distinctions of which, alone, the business machine is capable.21. This practice survives because few commanders command long enough to reckon with the fall out of this behavior. Commander’s Unit Status Report Metrics (Figure from Army Regulation 220-1, Army Unit Status Reporting and Force Registration—Consolidated Policies, 15 April 2010, https://armypubs.army.mil/epubs/DR_pubs/DR_a/pdf/web/r220_1.pdf) SFRG Regulations. We have ongoing work assessing DOD’s progress in achieving its overall readiness goals in each of five warfighting domains: ground, sea, air, … So, instead of stacking structural incentives impossibly high, diametrically opposing the integrity of the individual, and then blaming the individual for systemic failure, the resolution lies in structural reform. But overall, the Army had “met or exceeded” the goal of 66 percent of its brigade combat teams (BCT) reporting the “highest readiness levels for seven consecutive quarterly reporting periods.”1. The U.S. Army has rewritten Field Manual 7-22, Physical Readiness Training as FM 7-22, Holistic Health and Fitness (H2F). But unless the USR undergoes reform, it will neither ready us nor convey how ready we are, to the public or ourselves. This is understandable given the size of the force and the degrees of separation between everyday training and TRADOC. Simply put, readiness is the capacity for the armed forces to fulfill assigned missions.3. The goal of reporting a healthy pacer OR rate has displaced the goal of being ready. Leaders can increase readiness by talking about the connection of sleep, activity, and nutrition to prevent musculoskeletal injuries. This paradox, wherein organizational obsession with quantifying results corrupts them, is what historian Jerry Z. Muller has called “metric fixation.”2 The corruption in the case of readiness reporting takes many forms: the displacement of actual readiness with empty numbers, short termism among commanders and their staff, the collapse of innovation, the burning of endless man hours, and the hemorrhaging of job satisfaction. Just as reporting units have unique insight into what equipment most contributes to their mission in the case of pacers, so too do they have a strong understanding of what type and quantity of equipment they use to fulfill their missions. Extending command timelines would force a consideration of long-term effects that are otherwise a problem for the anonymous successor. Large-Scale Combat Operations Book Set Call for Papers, New Extended Battlefield - Multi-Domain Operations, Battles of the Korean War Virtual Staff Rides, Army Historian - Additional Skill Identifier 5X, https://blogs.mentor.com/jvandomelen/blog/2011/12/28/power-problem-what-now/, https://armypubs.army.mil/epubs/DR_pubs/DR_a/pdf/web/r220_1.pdf, https://www.rand.org/content/dam/rand/pubs/research_reports/RR2900/RR2979/RAND_RR2979.pdf, https://media.defense.gov/2019/Nov/20/2002214021/-1/-1/1/DODIG-2020-028.PDF, https://www.govinfo.gov/content/pkg/USCODE-2011-title10/html/USCODE-2011-title10-subtitleA-partI-chap2-sec117.htm, https://www.gao.gov/assets/680/679556.pdf, https://www.gao.gov/assets/700/696780.pdf, https://dod.defense.gov/Portals/1/Documents/pubs/2018-National-Defense-Strategy-Summary.pdf, https://www.armyupress.army.mil/Journals/Military-Review/English-Edition-Archives/July-August-2019/Townsend-command-control/, https://warontherocks.com/2017/05/three-things-the-army-chief-of-staff-wants-you-to-know/, http://armedforcesjournal.com/a-failure-in-generalship/, https://publications.armywarcollege.edu/pubs/2321.pdf. 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