Company Leadersâ 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) Army mobilization is the process of bringing the Army to a state of readiness for war, contingency, or national emergency. Theo Lipsky, U.S. Army, is a student at the Maneuver Captains Career Course at Fort Benning, Georgia. Capt. If we take readiness to be the Armyâs number one priority (or goal), then goal displacement is the most pernicious consequence of the USR as it definitionally displaces readiness. But to understand the scope of the harm, one must first understand the desired end (in this case, readiness) and the metrics used to measure itâthe USR and its components. As Leonard Wong and Stephen Gerras wrote in the 2015 report Lying to Ourselves: Dishonesty in the Army Profession (from which this piece draws much), âwith such a strong self-image and the reinforcing perspective of a mostly adoring American society,â Army leaders often ârespond with indignation at any whiff of deceit.â20 Discussions thus falter before they begin as all retreat to their respective corners. Short-termism similarly dominates the measured area of equipment on-hand. In a series of articles this past summer, Gen. Stephen Townsend and his three coauthors called for a reinvigoration of mission command, the Armyâs allegedly faltering approach to command and control. Though there is much to be said for earning oneâs place, ideas expire with time, and many exit the profession of arms before entering positions of influence in search of a more enterprising culture. All repair parts for all tanks are then ordered under that single tankâs serial number. The dearth of innovation at the top of the Armyâs 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. 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 âhangar queensââsacrificial vehicles used as spare-part trees. Muller defines short-termism in The Tyranny of Metrics as âdiverting resources away from their best long-term uses to achieve measured short-term goals.â14 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. Implied in the hyperquantification and rigidity of the USR is an organizational distrust of the reporting unit, and therefore the soldiers who constitute it. A common illustration is as follows: broken vehicles are not marked as broken in the Armyâs digital database (a process known as âdeadliningâ) until the unitâs maintenance section has diagnosed the issue with the vehicle and identified what parts must be ordered to fix it. 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 unitâs assigned mission. Applicability. The effects of those flaws are twofold: USRs not only fail to capture the readiness of reporting units, but they also actually harm the readiness of reporting units. The unfortunate truth of the report, and others like it, is that it substantiates its findings with data from the Department of Defense Readiness Reporting System-Army (DRRS-A). åÜwç?+¶s.µ¡£¡: l&° àè #0)HÂccMý40A@åfbpH¿fàa`Ú¨3ÁrÚ'Ï-i ¡l÷àÈáVÒ¹Á2@Áñ*XùªfX±'@ Úlz This is understandable given the size of the force and the degrees of separation between everyday training and TRADOC. 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. 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. Thus, command-and-control vehicles rust in the motor pool while twenty directionless anti-tank trucks roam the battlefield, but as far as the USR is concerned, the unit is combat ready. Search: View Section 508 Version. Upon receipt of the repair parts, the maintenance leadership divvies them up to the many other inoperable but unreported vehicles. The imperative to quantify readiness does not find a mandate in code alone. 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. Most obviously, the fragility and frequency of the USR discourages innovation, or âdisciplined initiative,â and its twin, ârisk acceptance,â that might otherwise increase readiness. The purpose of recovery becomes to report it complete, and all the while, units grow weaker. Rather than empowering them to âsubjectively upgradeâ overall readiness ratings (as AR 220-1 does now), which obscures rather than resolves metric fixation, reporting units ought have a larger role in the selection of what metrics capture readiness on the ground.22, Figure 3. As mentioned, the math at face value is straightforward. The USR and its pruning voraciously consumes another resource that serves a battalionâs mission: leadersâ and soldiersâ time. Muller has summarized the damage done by quarterly earnings âhysteriaâ to long-term strategy in the financial sector, and the same basic critique applies to the Army.25 Less frequent reports would permit units some actual recovery periods between training events without the disincentive of ugly USR reports. The numerator is what appears on the unitâs 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 âfully mission capableâ in the Armyâs digital maintenance records. A maintenance section in an armored formation, for example, might report only a single inoperable tank despite several others being broken. Army Deployment and Redeployment : Headquarters : Department of the Army . The auditâs resultant report was, on the whole, positive. In it, Scott relays among many examples the challenge Napoleonic France faced as it sought to standardize myriad local measurement codes: âEither the state risked making large and potentially damaging miscalculations about local conditions, or it relied heavily on the advice of local trackersâthe nobles and clergy in the Crownâs confidenceâwho, in turn, were not slow to take full advantage of their power.â23 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. readiness in accordance with the requirements stipulated in Army Regulation (AR) 220-1 (Army Unit Status Reporting and Force Registration - Consolidated Policies), and the Leaderâs Guide to Objective Assessment of Training Proficiency.17 The Army G-3/5/7 published the Leader's Guide in 2017 as the interim authority for CUSR Objective T- * 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 ⦠§ 117. 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 ⦠This discussion will focus on the question of equipment on-hand (the S-level) and equipment readiness (the R-level). Lastly, least measurable (and therefore, from a metric-intensive perspective, least credible) but just as tragic is what Muller calls the degradation of the work. Goal displacement. The issue is that pacer OR rates are poor indicators of readiness and not just because serviceability rates lend themselves to manipulation. Enlarge the figure. Reference memorandum, DAMO-0DR, 19 October 1987, SAB. Enlarge the figure. Such cannibalized vehicles or other pieces of equipment are sometimes used to skew unit readiness reporting requirements and mask unit logistical and materiel deficiencies. Leaders must document catastrophic damage, officers investigate it, logisticians review it, and property book officers direct replacements. Those leaders would certainly tolerate more programmatic maintenance. 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. Self-righteous blame invites obstinate defense, and both are obstacles to productive discussion. The resultant amalgam of definitions cripples the military bureaucracyâs ability to manage. The pacer OR rate is therefore in theory a reliable measurement of a unitâs ability to fulfill its mission, and it enjoys weight in the overall R-level calculus. SUBJECT: Equipment Readiness Code Rule System 1. Department of Defense Inspector General (DODIG). The top priority for Army leadership is readiness. There is no great advantage to monthly reports but many costs, only some of which have been discussed. In theory, MTOE captures all that a unit needs to fulfill its mission. This author acknowledges that the below recommendations are not equally feasible, and if executed improperly, fail to resolve the excesses of metric fixation. 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. This paradox, wherein organizational obsession with quantifying results corrupts them, is what historian Jerry Z. Muller has called âmetric fixation.â2 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. As the metrics employed by USR gravitate closer to actual drivers of readiness, the risk of the former displacing the latter would necessarily decrease. Pacer designation is an example. A first step toward this end would be to better incorporate the judgment of reporting leadership, those closest to the capabilities of their formations. When handled properly, issues identified during recovery take weeks if not months to resolve. 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. The massive effort units expend to reach the highest levels of readiness on USRs would therefore more efficiently ready them. This regulation provides information on medical deployment determinations and in-dividual medical readiness elements. Even worse, units will not turn in irreparably broken equipment (a process known as âcoding outâ) 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. 2. A leader with more time in the driverâs seat similarly plans for the longer term. According to regulation, for a piece of equipment to be fully mission capable, it must pass a âpreventative maintenance checks and servicesâ inspection without failing a single ânot ready ifâ bullet. 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. This regulation applies to all directorates, special staff sections, major subordinate commands, tenants, and tional Guard are governed by regulations issued by the Chief, National Guard Bu-reau consistent with Chief, National Guard Bureauâs authorities under 32 USC 110, 10 USC 10503, and DoDD 5105.77. to learn about the U.S. Army initiatives. This approach enjoys the dual advantages of preempting the defensiveness Wong and Gerras encountered and more credibly promising results. Simply put, readiness is the capacity for the armed forces to fulfill assigned missions.3. 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. 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. 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). As the organization solicits input and metrics of performance acquires meaning, work regains its esteem and morale increases. According to The Army Strategy, the Army projects that it will reach its readiness goals by 2022, at which point its priority is expected to shift to modernization. Readiness, it says, is the ability of the Armed Forces to carry out the presidentâs National Security Strategy, the secretary of defenseâs defense planning guidance, and the chairman of the Joint Chiefâs National Military Strategy. The perversion of maintenance that results is a familiar story to anyone who has worked in an Army motor pool. SFRG Regulations. This regulation prescribes the purpose, policies, procedures, and responsi- bilities for planning, preparing, executing, and assessing Army Strategic and Opera- tional Readiness. 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. Enlarge the figure, Muller explains metric fixation as the overreliance on transparent, quantified measurements to capture and incentivize an organizationâs performance; it is also the persistence of this overreliance despite myriad negative consequences. The U.S. code, having defined readiness, outlines how it ought to be reported. Army Regulation 525â93 . This distrust is not lost on those soldiers, and it invites them to respond in kind. Decreasing the frequency of USRs to a biannual or even annual iterations would also assuage many of its ill effects. Only strict standardization renders the force legible, whether to the Pentagon or to Congress. 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. A 2016 GAO report typifies its argument for hard numbers and the tongue-clicking that ensues when results are insufficiently quantified: âThe services have not fully established metrics that the department can use to oversee readiness rebuilding efforts and evaluate progress toward achieving the identified goals.â5 Testimony from the GAO in February 2020 sustains this tone, lauding the Department of Defenseâs progress as it develops âmetrics to assess progress toward readiness recovery goals that include quantifiable deliverables at specific milestones [emphasis added].â6, In view of the above, Army Regulation (AR) 220-1, Army Unit Status Reporting and Force RegistrationâConsolidated Policies, endows the USR with an unsurprisingly quantitative structure. This signals strongly to me that these issues are unfortunately not limited to a single formation. Army Methodology for Overall Unit Readiness Assessments (Figure from Army Regulation 220-1, Army Unit Status Reporting and Force RegistrationâConsolidated Policies, 15 April 2010, https://armypubs.army.mil/epubs/DR_pubs/DR_a/pdf/web/r220_1.pdf) 3. Journal of Military Learning Submission Guide, Future Warfare Writing Program Submission Guidelines, Military History Instruction Support Team, 290 Stimson Ave. 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). Would-be innovators are told instead to wait until their careerâs distant future when, if they perform well enough, they might enjoy influence over the stratospheric decisions that inform doctrinal questions, MTOE, USR, or otherwise. Army Command Policy contains guidance on Army Family readiness at para 5-2, page 48 Army Regulation 600-20 (dated 24 July 2020) Amidst all this short-termism, ârecoveryâ becomes something of a four-letter word. 1 Army Directive (AD) 2019-17, 1 April 2019. j. HQDA EXORD 233-19 Army-Wide Implementation of the Soldier and Family Readiness Group, 16 December 2019. Soldiers must inspect equipment, mechanics troubleshoot it, and clerks order repairs. SUBJECT: Army Directive 2019-17 (Changes to the Soldier and Family Readiness Group Program) personnel, including single Soldiers and their Families, into ⦠A less frequent USR disrupts long-term planning less frequently. 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. It is not because of the individual but rather because of the devaluation of the individual that such perversions of organizational behavior occur. 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. The above temporal fixes reduce short-termism. In his previous assignment, he completed a tour in Germany, during which he served twenty-four months as a troop executive officer with 1st Squadron, 91st Cavalry Regiment, 173rd Infantry Brigade Combat Team (Airborne). Leaders can increase readiness by talking about the connection of sleep, activity, and nutrition to prevent musculoskeletal injuries. 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 § 117(a)(1)â(3) (2011), accessed 3 June 2020, U.S. Government Accountability Office (GAO), âGAO Highlights,â in, Robert K. Merton, âBureaucratic Structure and Personality,â, W. Keith Warner and A. Eugene Havens, âGoal Displacement and the Intangibility of Organizational Goals,â. We have ongoing work assessing DODâs progress in achieving its overall readiness goals in each of five warfighting domains: ground, sea, air, ⦠This process cuts out the ordering of new parts altogether. It provides policies and procedures for private organizations operation on Department of the Army installations. It starts in the unit area.â16 In doing so, they echoed the chairman of the Joint Chiefs of Staff, Gen. Mark Milley, who in 2017 called for mission commandâs practice âeven on daily administrative tasks you have to do in a unit area.â17 Unfortunately, the USR, perhaps the Armyâs most quotidian administrative garrison task, plays something of a perfect foil to mission command. It is the work of real readiness. Some units go even further to avoid an unbecoming R-level, displacing maintenance (and therefore readiness) in the process. Less frequent reports would reduce the pressure on leaders to prioritize readiness metrics over deliberate training progressions. The various forms of appeal, whether an âoperational needs statementâ or a âreclamation,â prove so cumbersome and lengthy that staffs rarely pursue them except in the direst cases. Short-termism. Robert K. Merton, a founding father of sociology, defined goal displacement as when âan instrumental value becomes a terminal value.â11 Professors W. Keith Warner and A. Eugene Havens elaborated in a seminal 1968 article that among goal displacementâs chief causes were ârecords and reports submitted to other echelons of the organization or to the sponsors, the public, or clients. Not only does this produce an inaccurate report, but it also confuses maintenance. The Army Regulation that governs all Soldier and Family Readiness Group operations is Army Regulation 608-1, Appendix J. One risk of such a practice would be mission creep. 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. 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. The same practice might be employed to adjust the MTOE. These tend to report concrete âstatistics,â or case examples, rather than intangible achievement.â12 This academy-speak might translate into military-speak by simply saying that the USR makes the Army a self-licking ice cream cone. Of the negative consequences Muller inventories, the USR most obviously induces the following in reporting battalions across the Army: goal displacement, short-termism, time burdens, innovation aversion, and degradation of work.10. Mission. United States Department of Army Family Morale Welfare and Recreation Command: Lynn McCollum, Director, Family Programs Kathy Quinn Ledbetter, Family Readiness Division Chief Peter Hepp, Social Science Program Specialist Check it out. The commanders and staff chase readiness as the USR measures it, often at the cost of actual readiness. Definitions cripples the military to oversight entities like the House armed Services Committeeâs Subcommittee readiness. 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