[Senate Hearing 109-]
[From the U.S. Government Publishing Office]
DEPARTMENT OF DEFENSE APPROPRIATIONS FOR FISCAL YEAR 2006
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WEDNESDAY, APRIL 6, 2005
U.S. Senate,
Subcommittee of the Committee on Appropriations,
Washington, DC.
The subcommittee met at 9:30 a.m., in room SD-192, Dirksen
Senate Office Building, Hon. Ted Stevens (chairman) presiding.
Present: Senators Stevens, Cochran, Domenici, Inouye,
Leahy, and Dorgan.
DEPARTMENT OF DEFENSE
Department of the Air Force
Office of the Secretary
STATEMENTS OF:
HON. MICHAEL L. DOMINGUEZ, ACTING SECRETARY OF THE AIR FORCE
GENERAL JOHN P. JUMPER, CHIEF OF STAFF
OPENING STATEMENT OF SENATOR TED STEVENS
Senator Stevens. Good morning, Mr. Secretary and General
Jumper. It's good to see you before our subcommittee at this
time.
It's great--a matter of great importance. I'm sorry to say
that there are problems about votes and schedules that have
been changed due to the joint session of Congress. We do thank
you each for your dedicated service to our Nation and to the
people that serve with you in the Air Force. We remain
committed to do as much as we can to assist you in your jobs,
and we know you're confronted with a very difficult task in
modernizing the Air Force and meeting the challenges that we
have in Afghanistan and Iraq.
We have begun our review of the 2006 Defense budget. And
from your budget request and from your posture statement, we
understand the Air Force is placing priority on modernization
through the continued investments in the F/A-22, the C-17, and
the F-35. We also note a significant commitment to the next
generation of space platforms, and look forward to hearing your
statements and priorities today.
Senator Inouye will be along momentarily. He's asked us to
proceed. Your full statements are already part of the record.
We appreciate your having provided them, according to our
rules, and would like to have you make your remarks at this
time.
Mr. Secretary.
Mr. Dominguez. Thank you, Mr. Chairman and distinguished
members of the subcommittee.
I'm honored to appear before you today representing our
United States Air Force. I'm especially honored to be here with
General John Jumper, the Air Force Chief of Staff. Together, we
direct a fantastic group of military and civilian airmen at
work every day defending this country.
I thank this subcommittee and the entire Congress for your
support to our airmen. We will need your continued support as
we face demanding challenges in the months and years ahead.
As Acting Secretary, I have five major priorities for the
coming months. They are, first, recapitalizing our force;
second, weathering the 2005 fiscal storm; third, re-balancing
and shaping our force; fourth, continuing transformation; and,
finally, restoring your trust and confidence in the Air Force
and its leadership.
RECAPITALIZING AGING SYSTEMS
The Air Force's number one challenge is recapitalizing our
aging systems. We need to find the right balance between
acquiring new systems and keeping our legacy systems flying.
Addressing this long-term recapitalization problem is made all
the more demanding by the huge shortfalls we face this year in
our personnel and operations accounts. General Jumper and I
recently directed the Air Force to cut back on peacetime
readiness and training operations to conserve funds. But
cutting back, alone, can't close the $3 billion gap in our
operation and maintenance (O&M) account. We are also short some
$700 million in our military personnel account. And there, too,
cutting back will not close the gap. We'll need your help, by
acting quickly on the President's supplemental budget request
and by considering favorably the painful reprogramming actions
we will undoubtedly forward to you in the coming months.
FORCE SHAPING
In force shaping, we face the challenge of our own success.
In the current fiscal year, we temporarily slowed recruiting so
that the Active Force will be at or below our congressionally
authorized end strength by October 1. Fiscal year 2006 will
return us to a normal recruiting year, and we'll need your
support in the fiscal year 2006 appropriation for robust
recruiting and accession programs. Our goal is a properly sized
and shaped force, with the right end strength, the right skill
mix, and the right balance between active duty, Guard, Reserve,
and civilians.
CONTINUING TRANSFORMATION
My fourth priority is to sustain our momentum in
transforming the way we manage our part of the Department of
Defense enterprise. From the national security personnel system
to our capabilities review and risk assessment, base
requirements determination process, to improved information-
technology domain management, we are ensuring that our Air
Force remains efficient, agile, and adaptable to meet the
emerging threats of this century.
RESTORING TRUST AND CONFIDENCE
Finally, I'm concerned that events of the last few years
have eroded your trust and confidence in your Air Force and its
leaders. Restoring that trust and confidence is a solemn
obligation I take very seriously.
Mr. Chairman and distinguished members of the subcommittee,
thank you again for your consistent support. The United States
Air Force remains committed to protecting and defending our
country's interests at home and abroad by enabling freedom of
maneuver for joint and coalition forces and applying combat
power, when directed. We are meeting today's threats, and, with
your continued support, we will be prepared to meet tomorrow's
threats, as well.
PREPARED STATEMENT
Thank you for the opportunity to be here today. I look
forward to your questions.
[The statement follows:]
Prepared Statement of Honorable Michael L. Dominguez and General John
P. Jumper
Mr. Chairman and distinguished members of the committee, the Air
Force has a boundless future. The Service continues its transformation
to meet the emerging challenges of a dynamic world, and to ensure the
nation's security by dominating the global commons of air, space, and
cyberspace. The fiscal year 2006 budget takes a significant step toward
that future.
During the last decade the United States Air Force transformed to a
modular expeditionary force of ten Air Expeditionary Force packages
providing agile air and space power that has proven so successful
across the spectrum of operations from No-Fly Zone operations to the
Global War on Terrorism. We will continue transforming to meet the
challenges of a dynamic world by rebalancing the force and realigning
our structure into a Future Total Force that meets increased demands
for persistent intelligence, rapid mobility, and precision strike
capabilities. These requirements-based capabilities, derived from our
Concepts of Operation, are the necessary capabilities for joint and
combined force operations; and represent the trades available between
and among service components to deliver the right effects to combatant
commanders.
We are rebalancing the force by prudently changing our accession
goals and realigning manpower to overstressed career fields to better
balance our Airmen skill sets to get us to our authorized end strength.
We will take advantage of our Total Force expertise by more closely
aligning our Active Duty, Air National Guard, and Air Force Reserve
units into associate units to enhance our overall capability. We will
transform our command and control structure by establishing new
Warfighting Headquarters, positioned globally, to provide Combatant
Commanders the most effective means to command and control air and
space forces. The efficiencies realized will help ensure the air
dominance required for U.S. global operational access. But
reorganization is just one effort used to adapt and enhance our force.
Recapitalization and modernization of our aging weapon systems and
wise investments in science and technology are crucial if we are to
realize improvements in close air support, long-range strike, and
operationally responsive space. Likewise, changes in the traditional
methods of deterrence will require new capabilities to transform the
current Triad of intercontinental and sea-launched ballistic missiles,
and bomber aircraft into a New Triad--a diverse portfolio of non-
nuclear and nuclear ``strike capabilities'' and active and passive
defenses. While we remain engaged in contingency operations and
homeland defense missions, we look to the future where completely
networked, horizontally integrated operations will lead to complete
domination of the global commons of air, space, and cyberspace.
Our 2005 Posture Statement reflects our good stewardship to manage,
maintain, and develop an irreplaceable defense resource--America's Air
Force. It is our vision for the future--a future in which the world's
finest Airmen, together with our sister Services, will remain
effectively decisive in combat to attain victory.
introduction
Today's security environment is characterized by change and
ambiguity. The future will include a variety of challenges, including
the risk of catastrophic attacks on the homeland, and the possibility
of disruptive technological breakthroughs by our adversaries. The
number and character of potential U.S. adversaries is growing and
changing, as states and non-state actors acquire advanced technology
and even weapons of mass destruction. We can foresee the near-term
threats posed by ballistic and cruise missiles; chemical, biological,
radiological, and nuclear weapons; advanced double-digit surface-to-air
missiles; and sophisticated combat aircraft. We should also anticipate
computer network attacks and attacks on other critical infrastructure,
including space networks. Not only must we be prepared to confront
these known threats, but we also must be ready for unexpected,
disruptive breakthroughs in technology that may undercut traditional
U.S. advantages. Maintaining a strong defense able to overcome and
defeat these threats remains an imperative for our nation. Currently,
the Air Force can command the global commons of air and space, and
significantly influence the global commons of sea and cyberspace;
however, we cannot maintain this advantage using yesterday's technology
in the systems and air and space vehicles of our current force
structure. Recapitalizing our aging systems is our number one
challenge.
We are steadfastly meeting these challenges head on. With
capabilities-based planning; investments in modernization, science and
technology; Airmen development; and a focus on integration, we will
transform into a more lethal force.
We are working with equal intensity to increase the integration and
effectiveness of the joint and interagency team. The Air Force is
responsible for several missions essential to the successful
prosecution of any joint expeditionary operation: we provide the
persistent intelligence and communications networks that deliver
decision-quality information to the joint force commander; we provide
global mobility in the airlift and tanker forces that move people and
equipment anywhere on the planet; and we provide rapid strike by
employing an umbrella of kinetic and non-kinetic strike capabilities to
deliver precise, tailored effects.
For America to hold its military advantage, the Air Force must
continue to improve its vital national capabilities. This means
anticipating the battlespace effects required in the future; we must
begin today to create the force we will need tomorrow. The Air Force
must adapt for the future without degrading its ability to conduct
operations now and in the near term. At the same time, we must
recognize fiscal constraints and remain a responsible custodian of the
taxpayers' dollar. We have developed a long-range plan to allocate
resources, balance risks, and shape the force to protect our nation--a
comprehensive Future Total Force (FTF).
Within FTF, we are restructuring our organizations for the decades
ahead. The organizational concept within FTF leverages the strengths of
all three components (Active Duty, Air Force Reserve, and Air National
Guard), as well as anticipated advances in technology, to create the
effects needed in tomorrow's battlespace. FTF encompasses all domains:
space, air, ground, and information. Most importantly, it capitalizes
on our most potent, flexible resource: our Airmen.
Our Airmen are a vital national resource. A key element in their
development is continuing to adapt the force structure to support
expeditionary operations. We face the paradox of suffering shortfalls
in certain high-demand career fields while exceeding our overall
congressionally authorized end strength. Therefore, we have enacted
several programs to reduce the total number of Air Force personnel
while reinvigorating career fields experiencing shortfalls.
As this century unfolds, technological innovation is accelerating
at an unprecedented pace. Our challenge is to quickly convert
laboratory ideas into battlefield effects. This entails more than
creating new weapon systems; it means adopting a developmental culture
that is inherently agile and responsive, enabling state-of-the-art
technologies to reach the battlefield in real time. Such institutional
agility will allow us to aggressively divest our legacy systems, field
the capabilities needed to meet new strategic challenges, and integrate
operations with those of the other Services and our coalition partners.
Air and space power is an essential component of a joint
warfighting team and a critical force multiplier for our Soldiers,
Sailors, and Marines. Our paramount responsibility is to provide air
and space dominance over the battlefield to enable the freedom of
maneuver necessary for the success of joint and coalition operations.
Whether strengthening the capabilities of Airmen on the
battlefield; enabling joint service net-centric operations; furnishing
more airlift and aerial refueling capability; or establishing an Air
Component Coordination Element with ground force commanders, the Air
Force is committed to increasing support to the joint warfighter. The
United States Air Force makes the whole team better.
air and space power today
Even as the Air Force moves forward with the Future Total Force, we
are engaged around the globe. Across many continents and missions in
air and space, the Air Force is a complete partner with our sister
Services, inter-agency partners, and friends and allies.
Global War on Terrorism
Since the shockwaves of September 11, 2001, the Air Force has been
integral to conducting and enabling joint and coalition operations in
the Global War on Terrorism (GWOT). Across three campaigns, Operation
NOBLE EAGLE (ONE), Operation ENDURING FREEDOM (OEF) and Operation IRAQI
FREEDOM (OIF), the Air Force capabilities of rapid strike; global
mobility; and persistent command, control, communications, computers,
intelligence, surveillance, and reconnaissance (C\4\ISR) helped defend
the air sovereignty of North America; break Taliban control of
Afghanistan; identify, target, and destroy al Qaeda terrorist nests in
Afghanistan; overthrow Saddam Hussein's regime; and conduct
reconstruction and counter-insurgency operations in Iraq. Although the
threat of terrorist attacks against the United States remains, the
joint team--strengthened by the Air Force--has made substantial
progress in putting terrorists on the defensive and developing the new
security partnerships essential for a sustained GWOT.
Operations IRAQI FREEDOM and ENDURING FREEDOM
The Air Force continues joint operations against Taliban remnants
and Iraqi insurgents. At the close of 2004, we maintained nearly 31,000
Airmen in the region--including 5,000 Air National Guardsmen and 2,500
Air Force Reservists--and we were flying 225 sorties a day over Iraq
and Afghanistan. Having already flown more than 250,000 sorties, the
Total Force team of Active, Guard, and Reserve Airmen continues to
perform aeromedical evacuation, persistent C\4\ISR from air and space,
close air support, aerial refueling, and intertheater and intratheater
airlift, while successfully adapting to the dynamic environment of
asymmetric warfare.
While certainly prominent in Major Combat Operations, rapid strike
has continued to enhance joint warfighting during reconstruction and
stability operations. Strikes against Taliban forces and Iraqi
insurgents show the enduring need for strike capabilities and the
capability of the Air Force to strike time-sensitive targets with
minimal collateral damage. The Air Force is bolstering this capability
with the deployment of 500-pound Joint Direct Attack Munitions now in
theater, development of the Small Diameter Bomb, and development of
directed energy weapons capable of delivering precise and tailored
effects in adverse environments.
Not only are Airmen directly overhead in Iraq and Afghanistan, but
Airmen from as far away as Nevada are controlling remotely piloted
aircraft critical to persistent C\4\ISR and rapid strike missions. For
instance, Predator aircraft are able to transmit their live video
pictures to ground-based targeting teams that are equipped with the
prototype Remote Operations Video Enhanced Receiver (ROVER) system.
Linking rapid strike and persistent C\4\ISR to forces on the ground,
ROVER has been used repeatedly to detect, target, and destroy
improvised explosive devices (IEDs), mortars, rockets, and other
insurgent activities across the region. Bolstering these capabilities
are Tactical Airborne Reconnaissance System (TARS) equipped F-16s flown
by deployed Air National Guard units. The digital cameras on the TARS
pod allow the pilot to conduct reconnaissance while simultaneously
providing close air support. Integrating these two missions is the
essence of responsive reconnaissance and integral to Air Force support
to ground forces.
To help defeat IEDs, the Air Force has fielded Specialized
Explosive Detection Dogs and upgraded three flying platforms that
specifically focus on detecting and defeating IEDs. In the future, we
will deploy IED Defeat Field Teams to further study where Air Force-
unique systems can make an impact.
To ensure uninterrupted sustainment of our deployed forces and
unhindered global mobility, several initiatives are being implemented
to enhance aircraft protection capabilities, including upgrades to
existing aircraft defensive systems, accelerated installation of new
systems, and improvements in software and flare dispensing patterns.
These improvements will increase the capability to detect and defeat
shoulder-fired missiles being used against our mobility aircraft.
Recently, these mobility assets have been used to reduce the need
for ground convoys on supply routes in Iraq. Flying above the IEDs and
ambushes that challenge convoys, the use of Air Force airlifters like
the C-130 and C-17 has reduced the number of trucks in convoys by
nearly 350 trucks per day.
Operations in Iraq and Afghanistan also highlight the importance of
space-based C\4\ISR capabilities to U.S. and coalition forces. These
capabilities have become integral to effective warfighting operations
and include precision position, navigation and timing; secure
communications; global weather; launch and support operations;
persistent worldwide missile warning; and intelligence gathering. OIF
and OEF relied on the all-weather precise position, navigation, and
timing capability provided by the Air Force's Global Positioning System
(GPS) constellation, satellite communications (SATCOM), and timely
observations of weather and enemy activity. Carrying out time-sensitive
targeting of Iraqi leadership and other critical targets during major
combat operations, nearly 40 percent of all munitions used in OIF were
GPS-guided and unaffected by the driving sand storms and inclement
weather. Holding the ultimate high ground, Air Force space
professionals keep a constant vigil over a global battlespace--
planning, acquiring, maintaining and operating the systems that sustain
America's decisive advantage in space.
Operation NOBLE EAGLE and Homeland Defense
The Air Force's principal Homeland Defense mission is Air Defense
and preserving the air sovereignty of the United States and its
territories. Since 9/11, more than 37,000 fighter, aerial refueling,
and airborne early warning sorties have been flown in defense of the
United States, while more than 1,800 air patrols have responded to
actual incidents and suspicious flight operations. A mission that
leverages the Air Force Reserve, Air National Guard, and Active Duty
components, the Citizen Airmen of the Air National Guard have primary
responsibility for providing alert aircraft at 17 of 18 sites.
The Air Force has also worked extensively with joint, interagency,
and combined organizations to improve the effectiveness of Homeland
Defense activities. Exercises like DETERMINED PROMISE-04 and UNIFIED
DEFENSE-04 illustrated how rapid strike, persistent C\4\ISR, and global
mobility can be seamlessly integrated with other agencies, and prove
critical to supporting U.S. Northern Command and the Department of
Homeland Security.
The Civil Air Patrol provides additional capability to Northern
Command, federal agencies, and state and local governments in the
Global War on Terrorism. Located throughout all 50 states, the District
of Columbia, and Puerto Rico, the Civil Air Patrol leverages the skills
and vigilance of 64,000 non-paid volunteers in more than 1,700 units to
bolster the Nation's defense.
Other Contingency Operations
In addition to operations at home and Southwest Asia, the Air Force
supported multiple other operations around the globe in 2004.
Complementing our permanent presence in Northeast Asia, we bolstered
the deterrence of North Korea with the continuous deployment of six B-
52 bomber aircraft to the American territory of Guam. The 8,400 Airmen
stationed in South Korea alongside Soldiers, Sailors, Marines and our
South Korean allies are critical to regional stability, and have
maintained the United Nations armistice on the Korean peninsula for
over 51 years.
In the Balkans, Airmen have flown more than 27,000 sorties in
support of Operations JOINT FORGE and JOINT GUARDIAN. These NATO-led
operations combine joint and allied forces to implement the Dayton
Peace Accords in Bosnia-Herzegovina and enforce the Military Technical
Agreement in Kosovo. At the end of 2004, approximately 475 Airmen were
supporting NATO's goal of achieving a secure and stable environment.
Since December 1989 and throughout 2004, Airmen have been a
critical part of the interagency fight against illegal drug and
narcotics trafficking. Deployed along the southern United States, in
the Caribbean, and Central and South America, eight aerostats and five
ground-based radars provide around-the-clock monitoring of airspace.
Operating these C\4\ISR installations, Airmen detected, monitored, and
provided intercepts on hundreds of targets attempting to infiltrate
U.S. airspace without proper clearance. Along with our joint and
interagency partners, these operations resulted in hundreds of arrests
and stopped thousands of pounds of contraband from being smuggled into
the United States.
Additionally, the Air Force is heavily involved in providing
humanitarian relief to people in need around the globe. Most recently
the Air Force deployed aircraft and Airmen to assist in relief efforts
for the Southeast Asian countries struck by tsunamis. In the initial
days, C-130s and KC-135s, flying 21 missions, delivered over 120 tons
of food, water, medical supplies, vehicles, and personnel to assess
relief assistance. In another region of the world, the Air Force
provided airlift and logistical support to the deployment of African
Union peacekeepers to the war torn area of Darfur in Sudan. Also,
during recent elections in Afghanistan, we airdropped water and food to
remote areas to help ensure a secure and smooth voting process.
Supporting all of these world-wide operations is a robust training
program that allows our Airmen to train like they fight. Competition
for scarce air, land, and water resources threatens to further encroach
onto our installations, ranges, and airspace--vital national assets for
developing and testing new weapons, training forces, and conducting
joint exercises. The Air Force supports legislative, regulatory, and
management initiatives that protect Air Force operational capability
while sustaining, restoring, and modernizing our natural
infrastructure.
Air and Space Expeditionary Force
The Air and Space Expeditionary Force (AEF) is how the Air Force
organizes, trains, equips, and sustains forces to meet defense strategy
requirements outlined in the National Military Strategy and Strategic
Planning Guidance. Including the Active Duty, Air Force Reserve, and
Air National Guard, the Air Force is divided into ten AEFs and an
enabler force to support and sustain global expeditionary operations.
Each AEF provides a portfolio of effects-based capabilities for the
Combatant Commander. These capabilities are immediately available in
two AEFs continually postured for rapid deployment. The remaining eight
AEFs are in various stages of redeployment, rest, training, or
deployment preparation but could rapidly deploy to a combat area if
needed. When necessary, the full capability of the Total Force can be
realized by surging the remaining AEFs.
During 2004, worldwide requirements of OIF, OEF, and GWOT placed
high demands on our Expeditionary Combat Support (ECS) forces, long-
range bombers, security forces, and other units. Due to this increased
tempo, selected Air Force forces are still deployed at nearly twice the
numbers that AEF policy defines as ``sustainable.'' To adapt to this
new set of circumstances, we changed our AEF deployment length from 90
days to 120 days, and the AEF cycle from fifteen months to twenty
months. The greater deployment length allows greater continuity for
expeditionary commanders in the field.
New Triad
The National Military Strategy impacts our strategic forces as
well. The Department of Defense's new defense strategy of employing a
capabilities- vs. threat-based approach to planning led to the ongoing
transformation of the existing triad of U.S. strategic nuclear forces
(intercontinental and sea-launched ballistic missiles and bomber
aircraft) into a New Triad composed of a diverse portfolio of systems.
The elements of the New Triad will contain non-nuclear and nuclear
``strike capabilities;'' active and passive defenses; and research and
development and industrial infrastructure for developing, building, and
maintaining offensive forces and defensive systems.
Worldwide Force Protection Challenges
The United States faces an array of asymmetric threats from
terrorists and rogue states necessitating a new Force Protection
concept of Integrated Base Defense. The new concept draws from recent
lessons learned and defines a Force Protection role for every Airman as
a defender of bases and critical assets. We are also developing a wide
range of offensive and defensive capabilities to include new ground
sensors, unmanned aerospace sensors, a common operating picture, and a
command and control suite that links these sensors to remotely-operated
weapons and robotic systems. Non-lethal weapon systems have the
potential for bringing a revolutionary set of capabilities to
commanders.
Countering and defending against chemical, biological,
radiological, nuclear, and high-yield explosive (CBRNE) weapons is
another element of Force Protection and Integrated Base Defense. To
prevent adversary acquisition or development of these weapons,
neutralize their capabilities, and restore essential operations and
services after an attack, we are implementing a Counter-CBRNE Master
Plan. This will improve our ability to meet operational needs, while
maximizing joint cooperation and leveraging existing institutions and
capabilities.
air and space power, tomorrow through the fydp
Base Realignment and Closure 2005
Base Realignment and Closure (BRAC) 2005 is the primary means by
which the Air Force will optimize current infrastructure to enhance
both warfighting capability and efficiency for the future. Taking a
comprehensive, 20-year view, BRAC 2005 will allow the Air Force to
realign the posture of our forces to better address the new challenges
we face. Through creation of innovative organizational and basing
solutions, the Air Force will facilitate joint and multi-component
missions, reduce inefficiencies, and free up valuable resources to
recruit quality people, modernize equipment and infrastructure, and
develop the capabilities needed to meet 21st Century threats.
While doing this we will remain focused on our three core
competencies, which enable us to create the effects required on the
battlefield of the future: Developing Airmen, Technology to
Warfighting, and Integrating Operations. By focusing on these areas the
Air Force has created a program through the Future Years Defense
Program, which optimizes the return on our resources.
Developing Airmen
To adapt to dramatic changes in force structure and the security
environment, we established a set of strategic goals to focus our
personnel mission.
Force Shaping
We are on track to bring active duty end strength to the
congressionally-authorized level of 359,700 by the end of fiscal 2005.
This planned reduction shapes the future force without jeopardizing
career field health.
The Force Shaping plan has two phases: (1) increase voluntary
separations and retirements, and (2) further increase voluntary
separations while simultaneously reducing programmed accessions. Phase
1, implemented in February 2004, was used to judge retention behavior
and ensure a measured approach to reducing end strength. Phase 2, begun
in May 2004, allowed more service members an opportunity to leave
active duty. Additionally, we significantly reduced the Selective
Reenlistment Bonus (SRB) program from 146 to 62 enlisted skills,
resulting in a significant decrease in first-term reenlistment rates,
and we continue to review further reduction of SRB skills.
Other Force Shaping initiatives include the PALACE CHASE program--
early separation from Active Duty to serve with the Air National Guard
or Air Force Reserve--waiving of active duty service commitments, and
resurrection of the Career Job Reservation Program to correct skill
imbalances and re-train first-term Airmen into needed skills.
Additionally, we took advantage of the statutory authority that allows
2 percent of colonels and lieutenant colonels with two years time-in-
grade to retire in grade instead of waiting the normal three years; and
some Air Force Reserve Officer Training Corps graduates may now go
directly into the Air National Guard or Air Force Reserve.
In fiscal 2004, we lowered accession goals by approximately 3,000.
In fiscal 2005, we continued to lower our accession goals and have
temporarily limited enlisted accessions to only the 58 most critical
combat and combat support skills.
The results of our Force Shaping efforts are positive, facilitating
the migration of personnel into critical shortage specialties while
reducing manpower to ensure we meet authorized end strength
requirements by the end of fiscal 2005.
Rebalancing the Force
As we return to our authorized end strength, relief is flowing to
``overstressed'' career fields. This is a multi-step process, but our
guiding principle is simple--we will properly size and shape the force
to meet the needs of the AEF. We are drawing down prudently,
designating specialties and specific year groups within those
specialties where we have more people than we need. At the same time,
we are correcting our skill imbalances by realigning manpower and
expanding training pipelines.
We are also taking a hard look at where our people serve. We have
Airmen serving outside the Air Force who don't deploy as part of an Air
Expeditionary Force. They serve in joint and defense agency positions,
some of which require uniformed people; however, others do not. Through
military-to-civilian conversions and Competitive Sourcing initiatives,
we are returning these Airmen ``to the fold.''
The Guard and Reserve play a critical role in this endeavor. Today,
25 percent of the air expeditionary packages are composed of Air
National Guard and Air Force Reserve volunteers. As we take steps to
ensure the long-term health of our Active Duty forces, we must do the
same for our Citizen Airmen.
Recruiting/Retention
While reducing accessions is a tool currently being used to bring
the force down to authorized levels, it is imperative that we continue
to renew and replenish the ranks with targeted recruiting. For fiscal
2005, we plan to access nearly 19,000 enlisted members and just over
5,000 officers--a 44 percent reduction from normal enlisted recruiting
levels and a slightly lower level of officers compared to fiscal 2004.
As outlined under Force Shaping, a significant one-year reduction
in our recruiting goal is part of a deliberate effort to reduce force
size without jeopardizing long-term health. A one-year reduction will
create a temporary decrease offset by the number of personnel accessed
in preceding and subsequent years. We are committed to returning to
normal recruiting targets as quickly as possible. Continued
congressional support of our recruiting and marketing programs will
greatly enhance the Air Force's competitiveness in a dynamic job
market.
A critical element for success is the ability to offer bonuses and
incentives where we have traditionally experienced shortfalls. To
protect this valuable resource we ensure active senior leadership
management, including semi-annual reviews of which career specialties,
and which year groups within those specialties, are eligible for
bonuses. Congressional support for these programs, along with increases
in pay and benefits and quality-of-life initiatives, has greatly helped
us retain Airmen and their families.
Personnel Service Delivery Transformation
To achieve the Secretary of Defense's objective of shifting
resources ``from bureaucracy to battlefield,'' personnel services are
being overhauled. Our Personnel Service Delivery Transformation
dramatically modernizes the processes, organizations, and technology by
which we support Airmen and their commanders. Routine personnel
transactions, for instance, may now be done ``on-line.''
As a result, we deliver higher-quality personnel services with
greater access, speed, accuracy, reliability, and efficiency. We
programmed the resulting manpower savings to other compelling Air Force
needs over the next six years. This initiative enhances our ability to
acquire, train, educate, and deliver Airmen with the needed skills,
knowledge, and experience to accomplish Air Force missions.
National Security Personnel System
Our civilian workforce will go through a significant transformation
as well with implementation of the Department of Defense National
Security Personnel System (NSPS). NSPS is a simplified and more
flexible civilian personnel system that will improve the way we hire,
assign, compensate, and reward our valuable civilian employees. This
modern, agile human resource system will be responsive to the national
security environment, while preserving employee protections and
benefits, as well as the core values of the civil service.
Implementation will begin as early as July 2005.
NSPS design and development has been a broad-based, participative
process including employees, supervisors and managers, unions, employee
advocacy groups, and various public interest groups. Employees slated
for conversion to the new system will be included in groupings called
Spirals. Spiral One will include approximately 85,400 General Schedule
and Acquisition Demonstration Project, U.S.-based Air Force civilian
employees and will be rolled out in three phases over an 18-month
period. The labor relations provisions of NSPS will be implemented
across the Department this summer as well. NSPS is the most
comprehensive new Federal personnel system in more than 50 years and a
key component in the Department's achievement of a total force
structure.
Culture of Airmen
We completed an Air Force-wide assessment of our sexual assault
prevention and response capabilities, knowing we were not where we
needed to be in addressing this societal problem that has serious
readiness implications. A Campaign Plan was approved, and we are
implementing specific initiatives to better understand the problem of
sexual assault, do everything within our ability to prevent it, and
prepare ourselves to provide consistent and continuing care for victims
when it occurs.
In response to an increased suicide rate among Airmen, we
reemphasized, and continue to stress, the need for Airmen to look after
one another. Commanders and co-workers are rethinking the way Airmen
interact with one another, calling attention to behavioral indicators
and risk factors associated with suicide. Safety and risk management
are also being emphasized to reduce the number of accident-related
fatalities. We are weaving this mindset into the very fabric of our
culture.
All Airmen have a responsibility to get involved, pay attention and
ensure the health and well-being of their wingman. It's not a program,
it's a mindset; a cultural shift designed to take better care of our
most valuable resource--our people.
Air Reserve Component (Air Force Reserve and Air National
Guard)
Recruiting and retaining quality service members are top priorities
for the Air Force Reserve. Despite the strains mobilization places on
the personal and professional lives of Reserve members, volunteerism
remains high. In fiscal 2004, and for the last four years, the Air
Force Reserve exceeded its recruiting goal. Despite the long-term
effects of high operations and personnel tempo, Air Force Reserve end-
strength was within 0.7 percent of fiscal 2004 congressionally-mandated
requirements.
Reduced success in attracting military Air Force members who are
separating from Active Duty has steered the Air Force Reserve toward
recruitment and accession of non-prior service members. To meet the
resulting increased training demand, 4,000 training slots per year are
now allocated and funded for the Air Force Reserve. In addition, the
Air Force Reserve is taking advantage of the previously mentioned
PALACE CHASE program, which allows Active Duty members the opportunity
to move to the Air Force Reserve or Air National Guard. These
experienced members are then placed into critical career skills.
Complementing the Air Force Reserve, the Air National Guard plays a
vital role in support of the Homeland Defense mission and force
transformation. The ability of the Air National Guard to achieve
recruiting and retention goals through fiscal 2006 will help determine
how well the Air Force assumes new missions and supports Homeland
Defense.
As the Air Force Reserve and Air National Guard continue to surge
to meet operational requirements, we are examining existing law and
policy that govern enlisted incentives and related compensation with an
eye toward identifying changes that will encourage volunteerism. The
reserve enlisted bonus program is a major contributor to attracting and
retaining both unit and individual mobilization augmentee members in
critical career fields. To enhance retention, we are ensuring relevant
compensation statutes reflect the growing reliance on the Air Force
Reserve and Air National Guard to accomplish Air Force missions. We
continue to explore enhanced bonus authorities, which will provide the
flexibility to target our most pressing needs.
In addition, the Aviation Continuation Pay, the Career Enlisted
Flyers Incentive Pay, and Aircrew Incentive Pay continue to be offered
to retain our rated officer and enlisted personnel. We expanded the Air
Force Reserve Special Duty Assignment Pay (SDAP) program by including
an additional six career fields to enhance recruiting and retention,
improve program alignment, and provide parity to Air Force Reserve
members. The expansion authorizes the payment of SDAP to a reservist
qualifying in the same skill and location as their Active Duty
counterpart.
The Air Force has made great strides in increasing education
benefits for our Air Force Reserve and Air National Guard members,
offering 100 percent tuition assistance for individuals pursuing an
undergraduate degree and continuing to pay 75 percent for graduate
degrees. In addition, we appreciate the President proposing and
Congress enacting enhanced Montgomery GI Bill benefits for reserve and
Guard members who have served lengthy deployments.
The fiscal 2005 National Defense Authorization Act (NDAA) made
permanent several authorities providing enhanced Health Care/TRICARE
benefits for Air Force Reserve and Air National Guard members. For
members with delayed-effective-date orders to serve on active duty in
support of a contingency operation for more than 30 days, the new
legislation permanently authorizes TRICARE eligibility for up to 90
days prior to the member's activation date for eligible members and
their families. Additionally, the NDAA extended the Transitional
Assistance Management Program benefit period from 60 and 120 days to
180 days for eligible members and their families.
Training
Distributed Mission Operations (DMO) is the cornerstone for Air
Force training transformation. It is a readiness initiative to train
warfighters as they expect to fight using simulation and high-fidelity
architecture to link training at dispersed locations. DMO will reduce
travel costs and operations tempo while providing mission rehearsal in
an operationally realistic environment to maintain combat readiness and
provide support to operations. It will prepare and assess Air and Space
Expeditionary Forces and prepare AOC weapon systems, including Joint
Force Air Component Commanders, for real-world missions. As an
integration effort, DMO will leverage existing and emerging programs
and technologies to fill gaps in total team training, rehearsal, and
operations support.
Due to the continuing high operations tempo, the Air Force is
filling over 2,500 positions in 20 different combat support skills for
the U.S. Army in deployed locations--one of those skills is combat
convoy operations. As a result, we established the Basic Combat Convoy
Course to supplement Army training. This comprehensive, self-contained
course emphasizes small unit leadership, teamwork, weapons training,
and tactical convoy operations, greatly improving convoy operations and
personnel survivability. It also reduced total training time in Kuwait
from approximately six weeks to one.
Housing and Military Construction
Through military construction and housing privatization, we are
providing quality homes faster than ever. Over the next two years, we
will renovate or replace nearly 36,000 homes through privatization, and
an additional 11,000 homes through military construction.
Still, Airmen primarily live in communities near our installations.
Basic Allowance for Housing increases have reduced their average out-
of-pocket costs over the past few years, and will eliminate out-of-
pocket costs altogether in 2005, allowing greater flexibility for
Airmen who reside off base.
Investment in dormitories continues to accelerate in order to
provide superior housing to our unaccompanied members--evidenced by
nearly 4,400 dormitory rooms programmed for funding over the next four
years. Approximately 75 percent of these will address existing
inadequate dormitory conditions. Our new ``Dorms-4-Airmen'' standard is
designed to increase camaraderie, social interaction, and
accountability by providing four single-occupancy bedrooms/bathrooms
with a common kitchen and living area in each module. The combination
of the new standard and the Air Force's unit integrity assignment
policy provides an excellent platform to increase interaction within
the same unit. Finally, the remaining dormitory program jumpstarts a
buy-out of inadequate ``pipeline'' dormitories--those dorms that house
young enlisted students during their initial technical training.
Pipeline dormitory standards provide a large living area for two
students, two walk-in closets, a bathroom, and a separate vanity for
each occupant. All substandard dorms will be replaced by 2009. Knowing
the Air Force provides for a family's housing needs allows every Airman
to focus on the mission.
Airmen's performance and morale is directly influenced by quality
work centers as well. Therefore, we've placed significant emphasis on
recapitalizing and improving work facilities. We've focused investment
in training facilities to ensure a quality technical and mission-
oriented learning environment. Similarly, we've implemented a plan to
ensure all fitness centers meet current Air Force standards by 2011.
Finally, we've continued our focus on providing quality childcare
facilities.
Battlefield Airmen
Airmen are engaged beyond the air base; bringing technology to
warfighting on the ground using advanced systems to designate targets,
control aircraft, rescue personnel, and gather vital meteorological
data. The Air Force is optimizing this family of specialties, known as
Battlefield Airmen. So far, we have identified program management,
acquisition, and sustainment synergies across the Combat Rescue, Combat
Control, Terminal Attack Control, and Special Operations Weather
functional areas. Because Air Force personnel are an integral part of
the battlespace, we are also identifying common training requirements
for these Airmen.
We need to organize Battlefield Airmen for maximum effectiveness in
the modern battlespace. In addition, we must train Battlefield Airmen
in the skills required to maximize airpower, and standardize that
training across those specialties with different Battlefield Airmen
skills. Finally, we want to equip our Battlefield Airmen with improved
and standardized equipment for missions in the forward and deep
battlespace.
This will expand commanders' abilities to employ battlefield
airpower experts who can introduce unequaled accuracy, responsiveness,
flexibility, and persistence into designated air operations.
Joint Terminal Attack Controllers (JTACs), a subset of Battlefield
Airmen, direct the action of combat aircraft engaged in close air
support and other offensive air operations from a forward position. For
the first time, JTACs will be recognized across the Department of
Defense as capable and authorized to perform terminal attack control in
accordance with a joint standard. The Joint Close Air Support Executive
Steering Committee directed the drafting of a Memorandum of Agreement
defining the qualifications, certifications, and currencies these JTACs
must possess and maintain.
In addition to night-vision equipment, JTACs carry a hardened
laptop computer and multi-channel radio. We've significantly reduced
the weight these Battlefield Airmen must carry while simultaneously
providing them with the ability to do such things as designate targets
several kilometers away. We must further decrease the weight of their
gear while increasing the capabilities and interoperability of their
equipment with other air, space, and ground assets. This combination of
technology facilitates the direct transfer of information to combat
aircraft, minimizing errors in data transfer. To that end, the
Integrated Air-Ground Imaging Initiative enables the A-10 to send
digital targeting information instead of lengthy voice briefings;
provides a LITENING or Sniper Targeting Pod video down link to the
JTAC; and equips our JTACs with a multi-channel video receiver. This
equipment will increase situational awareness, assist in combat
identification, maximize first-attack success, shorten the kill-chain,
and ultimately provide better support to ground forces.
Technology-to-Warfighting
Capabilities-based Concepts of Operation
The Air Force has established a capabilities-based approach to both
war planning and force development, allowing focused investments on
those capabilities needed to achieve the battlespace effects required
by the joint warfighter. Our capabilities-based approach frees us from
platform-centric force planning, leading to new ways of thinking and
innovative combinations of systems.
The Air Force has developed seven concepts of operation (CONOPS)--
six operational and one supporting foundational concept--for
capabilities-based planning. The CONOPS define the effects we can
produce across the span of joint tasks we may be tasked to perform, and
help us identify those capabilities an expeditionary air force will
need to achieve the desired battlespace effects. They also provide an
operational context for determining how good our capability levels need
to be and assessing how close we are to that objective.
--Homeland Security CONOPS leverages Air Force capabilities with
joint and interagency efforts to prevent, protect, and respond
to threats against our homeland.
--Space and Command, Control, Communications, Computers,
Intelligence, Surveillance, and Reconnaissance (C\4\ISR) CONOPS
encompasses the integration of manned, unmanned, and space
systems to provide persistent situational awareness, space
control, and decision-quality information.
--Global Mobility CONOPS provides the planning, command and control,
and operations capabilities to enable timely and effective
projection, employment, and sustainment of U.S. power in
support of U.S. global interests.
--Global Strike CONOPS employs joint power projection capabilities to
engage anti-access and high-value targets, gain access to
denied battlespace, and maintain that operational access for
required joint/coalition follow-on operations.
--Global Persistent Attack CONOPS provides a spectrum of capabilities
from major combat to peacekeeping and sustainment operations.
Global Persistent Attack assumes that once access conditions
are established via the Global Strike CONOPS, there will be a
need for persistent and sustained air, space, and information
operations.
--Nuclear Response CONOPS provides the deterrent ``umbrella'' under
which conventional forces operate and, should deterrence fail,
provides options for a scalable response.
--The Agile Combat Support CONOPS details the capability to create,
protect, and sustain Air and Space Forces across the full
spectrum of military operations. It is the foundational,
crosscutting, and distinctive capability that enables Air Force
Operational Concepts.
The CONOPS approach articulates operational capabilities that will
prevail in combat and avert technological surprises. Through
capabilities-based planning, we will continue to invest in our core
competency of bringing technology to the warfighter, which will
maintain our technical advantage and keep our air and space
capabilities up-to-date.
Capabilities Review and Risk Assessment
The Capabilities Review and Risk Assessment (CRRA) process is the
starting point for Air Force force planning and capabilities
development. It replaced an outdated threat-based review process that
focused on platforms instead of warfighting effects and the
capabilities needed to achieve them. The CRRA requires a focus on
capabilities and fosters development of innovative solution sets. The
CRRA uses our six operational concepts and the foundational Agile
Combat Support concept to examine and assess our Air Force capabilities
now and in the future.
During the CRRA cycle, Risk Assessment Teams, composed of experts
drawn from all specialties in the Air Force and supported by models,
simulations, and other analytical tools, consider the requirements of
the CONOPS. They review existing and planned programs, Science and
Technology activities, and non-materiel factors. They determine the Air
Force's ability to deal with an adverse event and the impact on
achieving the joint warfighting effects if the Service fails to provide
the capability. Any shortfalls are screened against documented Lessons
Learned and Combatant Commander Integrated Priority Lists.
The CRRA provides senior Air Force leaders an operational-,
capabilities-, and risk-based focus for investment decision-making. It
uses operational warfighting effects as the drivers for Air Force
resource allocation, while also protecting public health and natural
resources.
Recapitalization/Modernization
The number one challenge for the Air Force is the need to
recapitalize our aging systems. For example, our aircraft fleet now
averages 23 years old. To determine the viability of these aging
fleets, we chartered the Air Force Fleet Viability Board (AF FVB) in
2004 to establish a continuous, repeatable process for conducting fleet
assessments. The AF FVB completed its first assessment, of the C-5A, in
July 2004, and is currently studying the 43-year-old KC-135 fleet.
The principles we applied this year during the CRRA process ensured
sufficient readiness to support the Global War on Terrorism while
transforming the force and maintaining an acceptable level of risk. We
have proposed recapitalization and modernization project funding
necessary to extend today's legacy forces while bridging to required
future systems.
Our primary modernization program is the F/A-22 Raptor. The F/A-
22's revolutionary low observable technology, supercruise (Mach 1.5
without afterburner), integrated avionics, and exceptional
maneuverability will guarantee America's air dominance and joint force
freedom of operation. The F/A-22 program is transitioning from
development to full rate production and fielding, where the aircraft
will join an integrated air and space force capable of responsive and
decisive global engagement.
The program entered Initial Operational Test and Evaluation (IOT&E)
in April 2004 to evaluate its operational effectiveness and
suitability. Air-to-air capabilities were successfully demonstrated and
initial air-to-ground capabilities were demonstrated with successful
testing of the Joint Direct Attack Munition. In parallel with IOT&E, F/
A-22 aircraft deliveries continue at Tyndall Air Force Base, Florida,
where the first cadre of operational F/A-22 pilots is training. The
27th Fighter Squadron at Langley Air Force Base, Virginia, is on track
to establish Initial Operational Capability for the F/A-22 in December
2005.
Complementing the tremendous capabilities of the F/A-22 is the F-35
Joint Strike Fighter, an important element of the Joint Warfighter's
Tactical Aircraft Modernization plan. For the Air Force, it will
recapitalize today's F-16 and A-10 combat capabilities. Specifically,
it will provide affordable and survivable precision engagement and
global persistent attack capabilities. Optimized for all-weather
performance, the F-35 will destroy an enemy's ability to attack or
defend. In 2004, the F-35 program successfully addressed early design
maturity challenges. The Service Acquisition Executive responsibility
also switched from the Navy to the Air Force. In this capacity, we will
continue to develop the three basic aircraft variants and coordinate
the interests of the Navy and Marines, along with our numerous
international partners.
Remotely Piloted Aircraft have demonstrated their combat value in
the Global War on Terrorism. The RQ-1/MQ-1 Predator continues to
transform warfighting; providing persistent intelligence, surveillance,
and reconnaissance; target acquisition; and strike capabilities against
time sensitive targets. Used in every Air Force operation since 1995,
Predator has amassed over 100,000 flying hours. Today, with U.S.-based
flight and mission control, Predator is truly providing a revolutionary
leap in how we provide military capability. Equipped with an electro-
optical, infrared, and laser designator sensor, and armed with Hellfire
missiles, Predator not only shortened the sensor-to-shooter timeline--
the sensor is now the shooter.
We are developing the ability to operate multiple aircraft from a
single ground station--in effect, multiplying our overall combat
effectiveness over the battlefield. We are also developing and
deploying a larger, more capable, and more lethal variant--the MQ-9
Predator B. The MQ-9 Predator B will employ robust sensors to
automatically find, fix, track, and target critical emerging time
sensitive targets.
By contrast, Global Hawk is a high altitude, long endurance,
remotely piloted aircraft that provides robust surveillance and
reconnaissance capabilities. Through the innovative use of synthetic
aperture radar and electro-optical and infrared sensors, Global Hawk
provides the warfighter unrelenting observation of intelligence targets
in night, day, and adverse weather. Since its first flight in 1998,
Global Hawk has flown over 5,000 hours--over half of that time in
combat.
Global Hawk provides superior intelligence, surveillance, and
reconnaissance data while deployed in support of the Global War on
Terrorism. While cruising at extremely high altitudes, Global Hawk can
collect information on spot targets and survey large geographic areas,
providing military decision-makers the most current information about
enemy location, resources, and personnel.
Dissemination and ground support exploitation systems consistently
deliver timely intelligence to bring immediate advantage to combat
operations. Despite its developmental status, Global Hawk is in
constant demand by Combatant Commanders.
The C-17 production program continues to be a success story for the
joint warfighting community. We are on schedule to receive the 180th of
these force multipliers in 2008. In concert with C-5 modernization
programs, C-17 acquisition is the critical enabler for meeting
established airlift requirements in support of the current force-
planning construct. Currently, the Joint Staff, Office of the Secretary
of Defense, and Air Mobility Command are reviewing mobility
requirements in light of the new National Military Strategy and the
Global War on Terrorism. This Mobility Capabilities Study will provide
a basis for determining future wartime airlift requirements. In the
meantime, the C-17 has been the airlifter of choice in contingency
operations. During Operation ENDURING FREEDOM, C-17s airdropped over
two million humanitarian rations. In Operation IRAQI FREEDOM, the C-17
performed the largest troop airdrop since Operation JUST CAUSE in
Panama, opening the Northern Front during initial operations.
Tomorrow's enabling capabilities will be hosted on a variety of
systems to include the E-10A aircraft. The E-10A is being developed to
identify and track enemy, friendly, and neutral forces, as well as non-
combatants. It will provide persistent intelligence, surveillance,
reconnaissance, and environmental data, and fuse multi-source
information into a common operating picture. In addition, it will find,
fix, track, and target low-flying cruise missiles and moving surface
targets. The E-10A program and its Multi-Platform Radar Technology
Insertion Program, in conjunction with other weapon system platforms,
will give the Combatant Commander a seamless picture of the battlespace
and an integrated defense against the cruise missile threat. This
capability allows friendly forces to respond to time-sensitive
opportunities with decisive force.
The Air Force has also emphasized the Persistent Ground Attack
mission for the next-generation Joint Unmanned Combat Air System
capability demonstration program. This system will undergo an
operational assessment in the 2007 to 2010 timeframe.
We must also recapitalize our aging tanker aircraft fleet. Based on
the completion of the KC-135 Recapitalization Analysis of Alternatives,
the air refueling portion of the Mobility Capabilities Study, and the
results of the Air Force Fleet Viability Board study, the Air Force
anticipates Department of Defense direction to execute the KC-135
recapitalization program of record. This program will support both the
2005 National Defense Authorization Act, which authorized purchase of
up to 100 tanker aircraft through a multi-year contract, and the 2004
Defense Appropriations Act that established a $100 million tanker
replacement transfer fund.
Capabilities-driven modernization and recapitalization efforts
continue on space systems as well; as we modernize our critical
constellations and capabilities across the spectrum of navigation,
weather, communication, missile warning, launch, surveillance, and
ground systems.
The Evolved Expendable Launch Vehicle (EELV) fields two launch
designs to provide assured access to space for government systems. The
Transformational Communications Satellite will employ Internet Protocol
networks and high-bandwidth lasers in space to dramatically increase
warfighter communications connectivity. Modernization of Global
Positioning System (GPS) and development of the next-generation GPS III
will enhance navigation capability and improve resistance to jamming.
In partnership with NASA and the Department of Commerce, the Air Force
is developing the National Polar-orbiting Operational Environmental
Satellite System, which offers next-generation meteorological
capability. We are well on the way to deployment of the Space-Based
Infrared System, a transformational leap in capability over our aging
Defense Support Program satellites. The Space Radar effort has been
refocused on developing a system that meets the needs of both military
and intelligence community users. Each of these systems support
critical C\4\ISR capabilities that give the Joint Force Commander
increased technological and asymmetric advantages.
Space superiority efforts are enabled by comprehensive space
situation awareness (SSA) and defensive and offensive counterspace
capabilities. Enhanced ground-based and new space-based SSA assets will
provide the necessary information to gain and maintain space
superiority. With respect to defensive counterspace, we maintain a
diversified ground-based command and control network and are developing
increased protection for our satellites and space-based services to
ensure the capabilities are there in time of battle. We also recently
fielded the counter-communications system to deny these same services
to our adversaries. A well-balanced architecture will enable execution
of an effective space superiority strategy.
Our Depot Maintenance Strategy and Master Plan calls for major
transformation in financial and infrastructure capitalization. To
support this plan, the Air Force increased funding in fiscal 2004-2009
for depot facilities and equipment modernization. We also began a
significant push to require weapon system managers to establish their
product support and depot maintenance programs early in the acquisition
cycle, and to plan and program the necessary investment dollars
required for capacity and capability. Additionally, we are partnering
with private industry to adopt technologies to meet capability
requirements. The result--enhanced warfighter support.
Finally, improvements to our air and space systems will require
improvements in our foundational support systems. Deteriorating
airfields, hangars, waterlines, electrical networks, and air traffic
control approach and landing systems are just some of the
infrastructure elements needing immediate attention. Our investment
strategy focuses on three simultaneous steps: disposing of excess
facilities, sustaining our facilities and infrastructure, and
establishing a sustainable investment program for future modernization.
Expectation Management/Spiral Development/Systems
Engineering
To improve effectiveness in providing technology to the warfighter,
we've enacted several new acquisition policies. Expectation management,
spiral development, and renewed emphasis on systems engineering will
eliminate technological surprises and reduce weapon system delivery
cycle times.
Expectation management means better collaboration between the
warfighting and acquisition communities during the life cycle of a
weapon system. At least yearly, general officers from the major
commands and acquisition community will formally review the cost,
schedule, and performance of acquisition programs. Beginning with frank
discussion about the ``art of the possible,'' these sessions will
subsequently inform decision makers about the ramifications of evolving
requirements and funding changes.
With a spiral development acquisition process, we expect to deliver
a baseline combat capability to the warfighter faster than a process
which focuses solely on a ``100 percent solution.'' This approach
increases flexibility to respond to the ever-changing nature of
external threats and resource fluctuations. Building on a solid systems
engineering foundation, we expect to maximize improvements in
communication and development strategy, paying dividends in
transitioning technology to warfighting faster, and at reduced cost.
Systems engineering ensures that contractor-proposed solutions are
both consistent with sound engineering principles and are spiral
capable. It is the chief means by which we can hedge against technology
risk. We must have the capability to proceed smoothly from one spiral
development effort to the next, capturing as much capability as current
technology and funding can produce. Under the direction of the Service
Acquisition Executive, Milestone Decision Authorities will now review a
program's proposed approach to systems engineering prior to approving
Acquisition Strategy Plans. Indeed, systems engineering performance is
so critical to our capability to transition technology to the
warfighter that it is included among contractor incentives. Many of the
above approaches are already in use.
In our space system acquisition, we will continue to emphasize the
transition from ``cost as the primary driver'' to ``mission success as
the primary driver.'' We will also continue to stress the importance of
budgeting to the most probable cost--with realistic reserves--and the
value of independent cost assessments, independent technical
assessments, program assessments, and reviews. Maintaining sufficient
reserves is essential to effectively executing these challenging
National Security Space Programs.
Transforming Business Process
By leveraging the availability of global information, we are
achieving significant operational advantages. All Air Force CONOPs rely
heavily on critical information resources that are available ``on the
network'' and delivered through a net-centric operating environment
that is robust, secure, and available. To maintain information
superiority, the Air Force must target a common infrastructure and
fully leverage enterprise services and shared capabilities. To ensure
the most efficient infrastructure, we are identifying enterprise-wide
information resource solutions. These solutions are designed to deliver
and implement efficiencies, which allow us to accelerate horizontal
information integration, reduce information exchange barriers, reduce
the total cost of information delivery, and shift resources to support
warfighter operations and weapon system modernization.
For example, we reduced operating costs over the last two years by
consolidating our networks and servers that provide Information
Technology (IT) services. More importantly, networks are more stable
with increased uptime and lower failure rates. We have improved our
security with a better computer defense posture and are able to deploy
patches and updates to the field quickly, resulting in fewer successful
intrusions and denial of service incidents. In addition, the stand up
of the Air Force Network Operations and Security Center will advance
our consolidation efforts and real-time monitoring of performance,
configuration control, and security posture.
The GeoBase program provides standardized installation mapping and
visualization support to Airmen through deployment of integrated aerial
photography and geospatial data layers. These IT products support the
joint warfighter common operating picture, minimize wasteful and
potentially dangerous redundant data collection efforts, and enable
cross-service situational awareness and decision-making capabilities.
IT Portfolio Management ensures IT investments align with Air Force
priorities and produce measurable results. Annual Air Force-wide
portfolio assessment ensures scarce resources are managed through the
Capital Planning Investment Control processes: select, control, and
evaluate. Senior leadership support of Portfolio Management enables the
Air Force to gain greater visibility into resources from an IT
enterprise perspective.
Likewise, we are transforming financial management by procuring and
implementing a modern commercial-off-the-shelf accounting system that
will produce accurate, reliable, and timely information. We are also
streamlining and centralizing our customer service organizations and
processes to invest more resources towards value-added demands while
reducing the cost of transaction-oriented tasks. The result will be a
smaller, but more efficient organization with enhanced financial
management skills that can partner with stakeholders to make informed
financial decisions based upon real-time information.
Department of Defense Teleport Program
The DOD Teleport program is the expansion of Defense Satellite
Communications System's Standardized Tactical Entry Point (STEP)
program. Teleport builds on the existing STEP program concept and was
approved for initial development in 1998. Seven STEP sites have been
selected to be upgraded to six Teleports: Defense Information Systems
Network Northwest, Virginia; Fort Buckner, Japan; Wahiawa, Hawaii; Camp
Roberts, California; Lago di Patria, Italy; and Ramstein Air Base/
Landstuhl, Germany (combined Teleport site). Teleport extends services
to the deployed user, providing secure and non-secure telephone
service; secure and non-secure Internet Protocol routing; and video
teleconferencing through worldwide satellite coverage between 65
degrees North and 65 degrees South latitudes. DOD Teleport provides
these services through a variety of satellite communication systems,
including the use of commercial satellites.
Air and Space Operations Center Weapon System (AOC WS)
The AOC WS is the focal point where command and control of all air
and space power is harnessed to deliver combat effects to the
warfighter. To make this center more effective, we made it a weapon
system--and we man it and train like it's a weapon system: certified
and standardized. We've injected the technology to increase machine-to-
machine connectivity by developing the software and procedures to
enable information fusion and accelerate the decider-to-shooter loop.
We expect to have all five of our AOC weapon systems (known as
Falconers) fully operational by fiscal 2006.
Integrating Operations
The Air Force provides a global presence and response capability
for the National Military Strategy that gives warfighters timely and
reliable access to all human, materiel and information resources. With
our expeditionary approach to warfighting, we are relying more heavily
on global operational support processes and extensive reachback--the
ability to support overseas operations from stateside locations. We are
modernizing these processes and related systems.
Key to this modernization is the establishment of common and
interoperable capabilities such as a single Air Force Portal and data
repository within the classified and unclassified domains. Over the
past 18 months, we have designed and implemented the Global Combat
Support System-Air Force program--a set of capabilities that support
our vision and objectives. Using these capabilities, we have rapidly
integrated legacy and newly developed applications and services, drawn
information from global sources to provide a composite view of
information, and eliminated the costly requirement for each program to
purchase and support unique hardware and system software.
Operational Support Modernization Program
The Air Force's Operational Support (OS) transformation is a seven-
to ten-year journey. By focusing on effectiveness and contribution to
warfighting effects, we can identify the early steps in this
transformation journey, and accelerate the delivery of changes that
contribute to the core mission of the Air Force.
In May 2004, a Commanders' Integrated Product Team (CIPT) issued
the Operational Support Modernization Program (OSMP) Flight Plan. The
plan identified four OS critical processes--Deployment Management,
Operational Response, Agile Sustainment, and Focused OS Command and
Control. The plan identified three enablers of OS transformation--
providing Shared Authoritative Data, executing an Integrated Workflow,
and providing a Common Operational Support Picture.
Money has been set aside from fiscal 2005 to fiscal 2009 to fund
modernization and transformation efforts under the Operational Support
Modernization Initiatives (OSMI). This venture capital funding provides
seed money for innovative ideas, allowing organizations to accelerate
delivery of capabilities to the warfighter to improve effectiveness.
In 2004, the CIPT established organizations that have captured a
significant portion of the operational support enterprise architecture;
coordinated the OSMI-04 analysis and decision process; developed a
draft version of the OS Concept of Operations for Business
Modernization; and initiated a ``Lean'' reengineering process within
the OS community while establishing the foundation for the cooperation
and coordination of Business Modernization efforts among the Air Force
Domains and major commands. The present Lean efforts focus on three OS
critical processes: AEF Deployment Management, OS Command & Control,
and Full Spectrum Threat Response, and are aimed at the needs of the
warfighter.
In 2005, the CIPT expects to realize the initial benefits of the
OSMP Flight Plan, including managing the OS processes and portfolio,
fielding initial capabilities, beginning horizontal integration,
increasing breadth of efforts, and engineering additional critical
processes. Over the long term, CIPT hopes to institutionalize
capabilities-based operational support.
OS modernization promotes Air Force-wide transformation efforts,
ensuring a cross-functional, cross-major command, enterprise approach
with the goal of a fast flexible, agile, horizontally integrated OS
process and system infrastructure.
Likewise, warfighters and decision-makers are dependent on
information generated and shared across networks worldwide. Successful
provision of warfighting integration requires an enterprise approach of
total information cycle activities including people, processes, and
technology. To best leverage current and emerging technologies with
warfighting operational and legal requirements, we are establishing a
new organization in 2005, Networks & Warfighting Integration-Chief
Information Officer (SAF/NWI-CIO). This new organization will absorb
and consolidate the Deputy Chief of Staff for Warfighting Integration,
Chief Information Officer, and Communications Directorate within the
Secretariat. The organization will be led by an active duty lieutenant
general.
Our logistics transformation provides a recent example of these
transformation efforts. While current logistics operations are
effective, sustainment costs are rising. In fiscal 2003, the Air Force
spent over $27.5 billion in operations and sustainment of weapon
systems and support equipment. The costs will continue to escalate
unless current logistics processes and associated information systems
are improved.
The Expeditionary Logistics for the 21st Century (eLog21) Campaign
is the Air Force's logistics transformation plan, and it is essential
to our overall Air Force Transformation program. The eLog21 goals are
straightforward: a 20 percent increase in equipment availability by
2009 and a 10 percent reduction of annual operations and support costs
by fiscal 2011. The savings gained through eLog21 will provide the
resources to support our warfighters by getting the right equipment to
the right place, at the right time, and at the right price.
At the core of this effort is a comprehensive examination of the
core processes used to support warfighters. A few years ago, Air Force
Materiel Command began a comprehensive process improvement effort
called ``Lean'' within our three Air Logistics Centers. ``Lean''
produced, and will continue to produce, substantial results. For
example, Robins Air Force Base, Georgia, freed up 20,000 square feet of
valuable industrial floor space to support expanded activities. We seek
to expand this transformational approach to base level maintenance,
installation support, and training activities.
There are many other facets of eLog21 that will leverage these
improvements: expanding the regional repair concept we have employed in
many deployed areas; streamlining the supply chain through better
collaboration with vendors; using commodity councils that are
responsible for managing the purchasing of weapon system components;
and leveraging the power of information technology through enterprise
resource planning, known as the Expeditionary Combat Support System.
Ultimately, eLog21 is about our people. The most important factor
will be our ability to tap into the ideas and energy of the thousands
of logisticians who keep our Air Force operating every day. It is not
just a staff project or a new information technology. It is a team of
Airmen developing new concepts in global mobility.
shaping tomorrow's air and space power
Future Total Force
As we move into the 21st century, the Air Force faces increasing
modernization and recapitalization challenges, increasingly hard to
define adversaries, and constrained budget realities. While we possess
weapon systems to meet today's challenges and are investing in cutting
edge technology and highly capable, highly trained personnel, we must
make transformational changes to maximize the capability these advances
provide. To accomplish this, the Air Force has developed a modified
force structure and new organizational construct--the Future Total
Force (FTF).
FTF provides the Air Force the capability and organizational
flexibility to address the near-term challenges of aging systems and
emerging missions. Furthermore, FTF will increase the Air Force's
ability to deploy in support of combat while maintaining a credible
force to continue necessary stateside training missions and Homeland
Defense.
In the future, the Air Force will shift investment from
``traditional'' combat forces with single mission capabilities to
multi-role forces, and aggressively divest itself of legacy systems.
The result is a force structure with expanded capability to combat
irregular, catastrophic, and disruptive threats, while maintaining the
capability to combat ``traditional'' threats.
This smaller but more capable force will provide for modernization
and recapitalization of selected weapon systems, allowing us to commit
more resources to networked and integrated joint enablers. Overall,
this modified force structure increases support to the joint
warfighter. With more airlift and aerial refueling capability, more
capable space constellations, persistent air-breathing ISR, and new
ways to think about close air support, the future Air Force will
provide more of the capabilities demanded by the joint force.
As part of this overall effort, the Air Force has developed an
organizational construct that capitalizes on the inherent strengths of
the Air Force's three components: the Active Duty, Air Force Reserve,
and Air National Guard. In order to capitalize on these strengths, we
based the FTF organizational construct on the successful associate
model. Associate units are comprised of two or more components that are
operationally integrated but whose chains of command remain separate.
Toward this vision, new organizational constructs will integrate
Air Force Reserve and Air National Guard personnel with their Active
Duty counterparts in virtually every facet of Air Force operations.
One of the key strengths of the Air Force Reserve and Air National
Guard is higher personnel experience levels relative to Active Duty
personnel. Increased integration will allow us to ``rebalance'' these
experience levels, seasoning our Active Duty personnel through exposure
to senior Reserve and Guard members. This also allows our Active Duty
pilots to gain experience flying operational sorties while capitalizing
on Reserve and Guard experience in an instructor capacity.
In addition to enhancing our efforts on the battlefield, Air Force
Reserve and Air National Guard members give us unsurpassed tools to
conduct Homeland Defense missions. While still involved in
expeditionary operations, FTF will increase the role of the Reserve and
Guard in emerging stateside missions--a perfect fit for our Citizen
Airmen. These changes will not only improve our operational
effectiveness, but will reduce reliance on involuntary mobilization,
providing more stability for Citizen Airmen and their civilian
employers.
The FTF, a modified force structure and new organizational
construct, will give us the needed capabilities to meet future
strategic challenges. Along with FTF, the Air Force has instituted
initiatives in several key areas for the future.
Science and Technology
The Air Force is committed to providing the nation with the
advanced air and space technologies required to protect our national
security interests and ensure we remain on the cutting edge of system
performance, flexibility, and affordability. Air Force Science and
Technology (S&T) investments are focused on achieving the warfighting
effects and capabilities required by the Air Force Concepts of
Operations.
By focusing on the technologies we believe we will need in the next
10 to 25 years, we have made great strides in the information
technology, battlefield air operations, space operations, directed
energy, and sensors areas. We are pursuing key technologies, for
example, sensors to identify concealed targets; automated information
management systems essential to net-centric warfare; and
countermeasures for Man-Portable Air Defense Systems.
One example, under development, is an integrated Surface Moving
Target Indicator (SMTI) network composed of manned and unmanned air and
space assets that will enable the Combatant Commander to remotely find,
fix, track, target, and engage moving targets. Lessons learned from
Operations DESERT STORM, ENDURING FREEDOM, and IRAQI FREEDOM reflect
the growing importance of SMTI. This proven capability shortens the
kill chain by providing the warfighter the ability to ``put a cursor on
the target.'' By linking future SMTI capability to find, fix, and track
a moving target to the F/A-22 and F-35 capability to target and engage
that same target, we achieve a transformational battlefield capability.
Other technologies, such as laser communications to increase data
transfer rates or advanced micro air vehicles to provide persistent
intelligence, surveillance, and reconnaissance, will increase future
warfighting capabilities.
Command, Control, Communications, Computers, Intelligence,
Surveillance, and Reconnaissance
Our goal is to achieve joint horizontal Command, Control,
Communications, Computers, Intelligence, Surveillance, and
Reconnaissance (C\4\ISR) integration and interoperability for the
entire joint force. The vision is a seamless and ubiquitous network
where space, air, and terrestrial assets have global machine-to-machine
connectivity; where warfighters are armed with decision dominance,
speed, and precision; and where weapon systems and platforms are
``network-enabled.''
The Airborne Network for ConstellationNet
The Air Force provides transportation layer components of the
overall Department of Defense Global Information Grid under an effort
we call ConstellationNet. The ConstellationNet is the information
transport network (space, air, and ground) that allows a free flow of
information rapidly accessible and presented to warfighters at the
right time and right place to create the Combatant Commander's desired
effects. The key to achieving information superiority is developing a
robust space and air network that provides connectivity to network
enabled platforms, fused intelligence, and real-time command and
control. We are building the architecture and infrastructure that
connects these platforms, creating a network in the sky.
The space and air network will leverage evolving technologies and
bring about the network-centric operations capabilities of Internet
Protocol-based networks to overcome the current challenge of making the
information exchange between platforms completely interoperable without
degrading performance. These new technology standards and protocols
will be incorporated through programs like the Joint Tactical Radio
System, the Transformational Communications Satellite System, and the
Global Information Grid-Bandwidth Expansion.
The Ground Network for ConstellationNet
The Combat Information Transport System (CITS) provides the Air
Force ground segment of the ConstellationNet. CITS is structured into
three components. The first is the communications transport component,
which delivers high-speed and high-capacity network backbone capability
for the distribution of voice, video, data, sensor, and multimedia
information inside the base campus, as well as the gateway off the base
to the Defense Information Systems Network and Global Information Grid
Bandwidth Expansion locations. The second component is Net Battle
Management. This component provides the capability to Air Force Network
Operations and Security Centers (NOSCs) to centrally command and
control the Air Force ConstellationNet across space, air, and ground
information transport domains. To command and control the network, the
NOSCs must have the ability to control the flow, routing, and traffic
priorities of information based on mission requirements. Additionally,
they must have the ability to grant and deny access to the network
based on mission need and threat to the Global Information Grid. This
leads to the third component of CITS, Net Defense. The Net Defense
component integrates and fields information assurance capabilities
across the ground component, to prevent unauthorized access to
ConstellationNet.
The Air Force envisions machine-to-machine communication between
platforms, manned and unmanned, on the ground, in the air, and in
space. To command and control these interactions, the Air Force has
initiated an effort called Warfighting Headquarters.
Warfighting Headquarters
We are transforming our command and control structure by
establishing new Warfighting Headquarters (WFHQ), positioned globally,
and replacing our old Cold War structures to provide the Joint Force
Commander with the most effective means to command and control air and
space forces in support of National Security objectives. This new
standing command structure consists of the Commander of Air Force
Forces (COMAFFOR), the COMAFFOR's personal and special staffs, and the
Air Force Forces functional staff. These forces will be organized and
resourced to plan and deliver air and space power in support of U.S.
and Unified Combatant Commander (UCC) strategies at a core capability
level on a daily basis, further easing the transition from peacetime to
wartime operations. The WFHQs are also structured to assume
responsibilities immediately as the Combined or Joint Force Air
Component Commander, and with the appropriate augmentation from the
UCC, could assume the role as a Joint Task Force headquarters. The
Warfighting Headquarters will also leverage the increased capabilities
developed through Joint Warfighting Space.
Joint Warfighting Space
The Air Force is intensifying its focus on operationally responsive
space--the ability to rapidly employ responsive spacelift vehicles and
satellites and deliver space-based capabilities whenever and wherever
needed. The first step in achieving a global Operationally Responsive
Space capability is the Joint Warfighting Space (JWS) concept. JWS will
provide dedicated, responsive space capabilities and effects to the
Joint Force Commander in support of national security objectives. The
concept seeks immediate and near-term initial operating capabilities to
meet pressing Joint Force Commander needs, and a Full Operational
Capability beyond 2010. Additionally, the Air Force envisions that JWS
system capabilities will evolve as technology advances and the needs of
the theater commander change.
In the near-term, JWS will exploit existing off-the-shelf
technologies from each Service. It will enhance and incorporate space
capabilities in joint training and exercises, increase space
integration in the AEF, and allow the Joint Force Commander to take
advantage of the many synergies provided by multi-service space
professionals. Lessons learned from JWS in exercises and crisis
employment will initiate changes to space doctrine and help the Air
Force, fellow Services, and joint community develop innovative space-
derived effects.
As technologies mature, JWS will bring the Joint Force Commander
enhanced, dedicated capabilities that eliminate gaps in present-day
space operations. The long-term plan envisions a fully capable
expeditionary force, ready and responsive to theater warfighters' needs
at the operational and tactical levels of war.
When fully operational, the JWS capability will deliver responsive
near space (i.e., the area above the earth from 65,000 to 325,000 feet
altitude) and on-orbit capabilities to directly support the Joint Force
Commander. If required, JWS squadrons could deploy from stateside to
operate near space assets or integrate JWS capabilities into theater
operations.
Improving Close Air Support and Battlefield Airmen
To increase its rapid strike capabilities in the close battlefield,
the Air Force is examining new ways to improve upon its joint close air
support (JCAS) mission, as well as implementing a way to better train
personnel for the employment of air and space power.
By combining the payload, long-loiter, and high-altitude capacity
of bombers with precision munitions, improved command and control, and
precise targeting, we have expanded our ability to conduct CAS.
Performing CAS at high altitude with great precision and persistence is
a major advancement in joint operations with land forces. Using laser
and Global Positioning System-guided bombs such as the Joint Direct
Attack Munition (JDAM), and with direct communications with a ground
controller, a variety of aircraft are able to drop large numbers of
JDAMs very close to friendly troops, destroying the enemy with massive,
yet tailored, firepower. This capability provides day/night and all-
weather support to ground forces.
Today, primarily fighter and bomber aircraft, like the A-10, B-52,
and F-16, conduct CAS. As these aircraft begin to reach the end of
their service lives, F-35A Conventional Takeoff and Landing (CTOL) and
F-35B Short Takeoff and Vertical Landing (STOVL) variants will become
the Air Force's workhorses for CAS and other missions.
The F-35B STOVL variant offers a capability to operate with
advancing U.S. Army, Marine, and Special Operations forces in a non-
linear, dynamic battlefield. In addition, the F-35B will have
commonality and interoperability with F-35s operated by other Services
and Allies, facilitating Joint and Coalition operations.
Additionally, Tactical Air Control Party Modernization Program
improvements are transforming close air support control from reliance
on voice communications during day/good weather conditions to digital/
video and night/all-weather capability. The Remote Operations Video
Enhanced Receiver kit provides real-time video from remotely piloted
aircraft and other video transmitters. It includes computers, software,
and data link operations, and can transmit targeting information as
well as formatted and free-hand messages. Laser range-finders and laser
designators provide the ability to take full advantage of precision and
near-precision munitions. Quickly and accurately identifying and
relaying target information not only makes our forces safer by allowing
engagement of enemy forces in minimum time, but also reduces the risk
of engaging the wrong target.
Long-Range Strike
To further refine its rapid strike capabilities, the Air Force is
transitioning its Long-Range Strike strategy to focus on effects
instead of platforms. We view long-range strike as the capability to
achieve the desired effects rapidly and/or persistently on any target
set in any environment anywhere at anytime. The Air Force is
responsible for conducting long-range strike missions as part of the
Global Strike Concept of Operations. Our forces must be responsive to
multiple Combatant Commanders simultaneously and able to strike any
point on the planet.
Today, we provide deep strike capabilities through a variety of
platforms and weapons. Future capabilities must continue to enhance the
effectiveness of the system. Responsive capabilities combine speed and
stealth with payload to strike hardened, deeply buried, or mobile
targets, deep in enemy territory, in adverse weather, with survivable
persistence in the battlespace.
Special Operations Forces
We are emphasizing the unique effect produced by the synergy of
Special Operations Forces (SOF) and rapid strike, and evolving
requirements for SOF in the Global War on Terrorism. As part of meeting
these new mission sets, we will continue to work in an increasingly
joint environment with our sister service SOF units, and in concert
with U.S. Special Operations Command. Our SOF units will enhance Army
operations concepts resulting in a wider dispersion of ground forces
across the battlefield.
New mobility platforms such as the CV-22 Osprey and the Advanced
Air Force Special Operations Forces Mobility Platform will add a new
dimension in the ability to conduct SOF operations. Additionally, the
F/A-22 will be a key enabler of forward operational access for joint
forces. The Raptor will use its stealth and supercruise capabilities to
support SOF and other maneuver elements deep in enemy territory, in
what would otherwise be denied airspace.
Closely related is the need to rapidly recover and extract
personnel. We have begun the Personnel Recovery Vehicle Program,
seeking to achieve initial operational capability in fiscal 2013 and
replace the aging HH-60 combat search and rescue aircraft.
We will continue to leverage our highly trained, highly motivated
SOF personnel and develop technologies to devise a smaller, harder-
hitting, faster-reacting, highly survivable force that maximizes the
element of strategic and tactical surprise to defeat America's current
and potential adversaries.
summary--on course for the future
The Air Force of the future makes the whole team better. Built
around the 2025 Force and its accompanying organizational construct,
the Future Total Force, the Air Force will be a more capable, smaller
force. As such, the future Air Force increases the capability and
flexibility of the joint force--and, subsequently, increases options
for the Secretary of Defense and the President. These military options
will be crucial to the defense of the nation as the United States
continues to wage the GWOT while transforming and strengthening the
joint force for any future contingency.
The Air Force offers an unparalleled set of combat capabilities to
directly influence any joint or interagency operation, as well as the
enabling capabilities to improve joint warfighting capabilities on the
ground, on or under the sea, and in the air and space. Recognizing that
no Service, or even DOD, can achieve success by itself, the Air Force
has focused on increasing the integration and effectiveness of the
joint force and interagency team.
To achieve new levels of integration and effectiveness, the Air
Force will take advantage of the United States' long-held command of
the global commons--air, sea, space, and cyberspace. The Air Force
intends to extend its current air and space power advantage. As part of
the joint force, the Air Force is positioned to leverage its persistent
C\4\ISR, global mobility, and rapid strike to help win the GWOT,
strengthen joint warfighting capabilities, and transform the joint
force--while minimizing risk.
To accomplish this requires focused investment in our people,
science, and technology, and recapitalization of our aging aircraft and
weapon systems.
As threats change and America's interests evolve, we will continue
to adapt and remain the world's premier air and space force. Together
with our fellow Services, we stand resolute, committed to defending the
United States and defeating our enemies.
Senator Stevens. General Jumper.
General Jumper. Mr. Chairman, Senator Inouye, Members, it's
a pleasure to share this table this morning with Mr. Dominguez,
and I want to second my support for the priorities that Mr.
Dominguez has laid out this morning. My comments this morning
will be very brief.
RECRUITING AND RETENTION
Today, we have 28,000 airmen deployed, working the issues
that confront us around the world. Six thousand of those are
from the Air National Guard and the Air Force Reserve; and
2,000 of that 6,000 are volunteers. We are making our
recruiting goals in almost every category, and our retention
goals, also, in almost every category. And we enjoy great
support from our Air National Guard and our Air Force Reserve
of the missions of the United States Air Force.
FLYING OPERATIONS
We're flying about 150 sorties a day over Iraq, and about
75 sorties a day over Afghanistan every day. These missions
include close-air support and surveillance missions. We have
Predator--multiple Predator orbits up, doing surveillance for
the forces on the ground; a very significant airlift effort,
both the strategic airlift that comes across the oceans to
resupply our forces and the tactical airlift that flies within
the theater every day. A significant tanker effort, that is
required to keep the airplanes from all of the services in the
fight, takes place every day and goes largely unsung as our
mobility force participates in Operation Iraqi Freedom. In the
midst of all of this, we responded to the tsunami with more
than 18 million pounds of relief supplies that were delivered
in the tsunami effort in and around Indonesia to relieve the
beleaguered people there. Overall, over 300,000 sorties this
past year in our efforts around the world.
RECAPITALIZING FORCE STRUCTURE
I share Mr. Dominguez's grave concern, and put the highest
priority on recapitalizing our force. As an example, our tanker
force and our--portions of our C-130 fleet are over 40 years
old, and we are already seeing about 2,000 of the 6,000
airplanes in the United States Air Force are under some sort of
a flight restriction, mainly due to aging considerations. We
need to put emphasis on this. And, again, I share Mr.
Dominguez's priority to put emphasis on recapitalizing our
fleet.
VISITING AIRMEN AROUND THE WORLD
And, finally, Mr. Chairman, you know the great people that
are out there. And let me just tell you how important it is
when you and members of this subcommittee, which you have all
done, travel over to the area of responsibility (AOR) to visit
our people. Believe me, they notice, and they--and I hear about
it--and they appreciate that visible sign of support, when you
all come and see them in action. It lets them know that the
people back home do, indeed, support them. So I thank you for
all your personal efforts to go make yourself visible to the
forces that are, indeed, engaged around the world.
I look forward to your questions, sir.
Senator Stevens. Thank you, sir. And thank you both for
your brief statement.
I'm going to yield to Senator Inouye. We have a vote that's
going to start at 10 o'clock, and then we have to go join the
House for a joint session, starting at about 10:25, so this
hearing will end about 10 minutes after 10.
I yield to you, my friend and co-chairman.
STATEMENT OF SENATOR DANIEL K. INOUYE
Senator Inouye. I thank you very much, Mr. Chairman.
I have a prepared statement. I ask that it be made part of
the record.
[The statement follows:]
Prepared Statement of Senator Daniel K. Inouye
Mr. Chairman, I join you in welcoming our representatives
from the Air Force. General Jumper, Secretary Dominguez we
thank you for being here today.
As the President's request was being formulated this
winter, word of many changes started to crop up in the press,
such as terminating the C-130, and canceling the F-22.
As we review the actual budget we see that many of these
issues are really recommendations that would occur in future
budgets.
For example, this budget includes funding to purchase the
F-22, and while it does not include funding for Air Force C-
130's, it does fund the Marine Corps C-130 tanker.
Nonetheless, the decisions to truncate plans for the F-22
and C-130 are controversial matters that we will need to
understand. We would expect that today's hearing would provide
a forum to address these issues.
Mr. Secretary, the Air Force is to be commended for its
support of Operation Noble Eagle here at home, and Operations
Enduring Freedom and Iraqi Freedom overseas.
We know that the Air Force has provided great support for
our ground forces in theater, using your tremendous airlift,
reconnaissance, and fighter aircraft.
In addition, what many people may be surprised to learn is
that there are approximately 2,600 airmen and women in Iraq in
direct support of the Army and marines serving as truck
drivers, security guards and combat engineers.
Mr. Secretary, General Jumper, in our hearings with the
Army, Navy and marines I have expressed my concern about
recruiting and retention. The other services are experiencing
difficulties recruiting or retaining personnel. At this moment,
the Air Force has the opposite problem, you have more military
personnel than you can afford. So, I hope you will address this
matter today to explain how the Air Force can be exceeding its
personnel goals while the other services are having shortfalls.
Gentlemen, we sincerely appreciate all that you and the men
and women in your service are doing for our Nation. We cannot
be more grateful for the sacrifices that you make every day.
Mr. Chairman, I thank you for calling this hearing and I
await the testimony of our witnesses.
Senator Inouye. I want to point out that most Americans
don't realize that you have about 2,600 men and women in Iraq,
airmen and airwomen, driving trucks, doing combat engineer
work, traffic, the jobs that other people do, like the Army or
the Marines. And I want to commend you for pitching in to help
the other services.
Second, As you know, General, at this time, all services,
with the exception of one, are having problems on recruiting
and retention. You have a problem of your own. You've got too
many of them.
General Jumper. Yes, sir.
Senator Inouye. We'd like to get some explanation on how
you're able to achieve all of that. Naturally, as I've pointed
out in the past, I'm concerned about the plans you have for C-
130s and the F/A-22s. These are--matters, I believe, which are
not only of concern for Hawaii and Alaska, but for the whole
Nation, and, for that matter, for the security of this globe.
So I thank you very much for the service that all of you
have rendered in Operation Iraqi Freedom and Enduring Freedom
and Noble Eagle. Great job, sir.
General Jumper. Thank you very much, sir. I appreciate that
very much.
Senator Stevens. Senator Leahy.
Senator Leahy. Thank you, Mr. Chairman. I know time is
short. I just want to welcome General Jumper and Secretary
Dominguez to the subcommittee. I felt fortunate that I've spent
a great deal of time with both of them. I think I even made
their staff nervous because of the amount of time it took in my
office with them yesterday. I spent the time because of the
great respect I have for General Jumper's leadership. And, Mr.
Secretary, I'm glad you're here. I've known General Jumper for
some time, and I greatly admire him and his leadership team. I
know they face some significant shortfalls--$3 billion in
operations and maintenance, almost $750 million in personnel
costs. I know we've always tried to work together in a
bipartisan way to help them on these budgets, Mr. Chairman, and
I pledge to work with you and Senator Inouye on that. But I
just wanted to compliment them. If we don't have time for
questions, I'll submit it for the record.
General Jumper. Thank you, sir.
MILITARY PERSONNEL END STRENGTH MANAGEMENT
Senator Stevens. Thank you very much. You both have
mentioned the fact that you're, sort of, utilizing attrition to
meet your top line, as far as personnel is concerned. Tell us
about that. You expect to go down to October--is that what you
said, Mr. Secretary?--and then start recruiting? Our figures
show that you're pretty much above your end-strength level
authorized right now.
Mr. Dominguez. Senator, we're--right now, at the end of
March, we're about 3,000 airmen over our authorized end
strength. That's the place we're supposed to be September 30.
So we are in very comfortable territory. It's within the
margin, now, of the wiggle room authorized by the Congress,
plus or minus 3 percent of our end strength.
We've been working the problem pretty aggressively for a
couple of years. Of course, the biggest gains were the ones
that we resisted having to make, and that's taking a very steep
nosedive in our recruiting in fiscal year 2005, which we have,
but we are recruiting. We are recruiting to our most critical
shortfall skills. And we figured we could do that with a 1-year
holiday. But we need, in fiscal year 2006, to return back to a
normal recruiting year about 30,000 active component airmen,
and that is the plan.
Now, in addition to dealing with accessions to get to our
end strength, we've been doing some pretty aggressive things to
try and entice people to leave us when they're in overage
skills. We've implemented career job reservation, where, if
you're in an overage skill, you have to retrain into a shortage
skill when you re-enlist. So these are all difficult kinds of
things. We didn't like doing them, but we were obligated to do
so.
I want to highlight, one thing that we are trying to do is
that we've worked in close partnership with the Army. Anyone in
the Air Force who wants to move into the Army and continue
their service there, we have a program called ``Blue to Green''
to help facilitate that movement.
RECRUITING
General Jumper. We essentially cut our recruiting in half
for this fiscal year, sir. And, essentially, from October to
February, we essentially shut down recruiting. We picked it up
again in February and are trying to work our way back into
normal recruiting. But that's the step, the major step, we took
to meet our end strength problem.
Senator Stevens. Thank you very much.
Let me state, for the members here, we have 20 minutes left
of this hearing. The vote will start at 10 o'clock. Let me
yield each of you 5 minutes, and then we'll see what happens
with the last 5 minutes, whether someone else comes in.
Senator Inouye is recognized for 5 minutes.
Senator Inouye. Mr. Secretary and General, I'd just like to
make a note and reflect upon history. When the B-2 was planned,
we had planned for, I believe, 132. And, at that time, I
believe the B-2 was going to cost us about $350 million per
aircraft. In order to cut costs, so they were told, we cut it
down to 21, and each B-2 cost around $2 billion. I see
something like that happening to the F/A-22. Would something
like that happen again, sir?
General Jumper. Go ahead.
AIRCRAFT ACQUISITION
Mr. Dominguez. Senator, we may be poised on that, and
that's certainly part of the discussion that we're going to
have with Secretary Rumsfeld and his team through the summer in
the Quadrennial Defense Review (QDR). But, largely, the up-
front investment costs of building that airplane are sunk. If
you--to buy the airplanes that were taken out of the budget in
this latest round--costs about $10 billion for 100 airplanes.
That's about $100 million a copy for the product. And legacy
airplanes, the F-15E, if you were going to buy another one of
those today, you'd be in the $90 to $100 million range, as
well. So the sunk-cost argument is something we have to be
really careful to explain.
QUADRENNIAL DEFENSE REVIEW
General Jumper. We've got to make sure, sir, that, as we go
into the Quadrennial Defense Review--I don't think that there's
an argument about the capability of the airplane; it's going to
be an argument--not an argument--it's going to be a discussion
about the numbers of airplanes. And that's a relevant
discussion. And the Secretary of Defense said we would have
that discussion. And, hopefully, we'll be able to amortize all
this investment we've had over the correct number of airplanes
when we finish the Quadrennial Defense Review.
Senator Inouye. I wish you the best, sir.
General Jumper. Thank you, sir.
Senator Inouye. We'll do whatever we can.
The other matter that concerns me is the C-130J termination
plans. I've been told that it may cost an extra billion
dollars. Is there any truth to that?
C-130J PROGRAM
Mr. Dominguez. Sir, what is accurate today is that the
costs estimated for termination of the C-130J multiyear that
are in the President's budget were underestimated. We know
that, absolutely. The Secretary of Defense has acknowledged
that. And his Office of Program Analysis and Evaluation is,
right now, re-looking at that, trying to get a handle on what--
the more accurate figure of the costs of terminating the
multiyear. The Secretary has committed to providing that
information to the Congress, if not by the end of this month,
certainly in the early part of May, before you're deep into
your markup of the 2006 budget.
General Jumper. And we also think, Senator, that, as the
mobility requirements study is completed by the end of this
month, that the mobility capabilities study will help inform
the Office of the Secretary of Defense (OSD) and the Secretary
of Defense on the proper steps to take for the C-130J multiyear
contract.
Senator Inouye. And I think the study will show that the C-
130J is needed. Am I correct?
General Jumper. Sir, I haven't seen the study, but if I
look at the world out there that we live in today, certainly
there's great demand for the C-130. And, as you well know, the
C-130s in the Air Force that we have today, many of them are
facing groundings because of wing cracks. So that requirement,
I see--personally, as I see it, is growing.
Senator Inouye. Thank you very much, Mr. Chairman.
Senator Stevens. Senator Domenici is recognized for 5
minutes.
Senator Domenici. Thank you very much, Mr. Chairman.
FUTURE AIRSPACE AND TRAINING RANGES
General, I want to talk a little bit about airspace for the
future. It's my understanding the Air Combat Command has 10
training ranges across the United States. These ranges support
different types of aircraft and targets, and allow for live-
ordnance delivery. These ranges and the airspace are critical,
as I understand it, to the training of our Nation's premier
aircraft. I believe it's less likely that new sources of
airspace will be available for the Department of Defense in the
future. In addition, recapitalizing tactical air assets with
the Joint Strike Fighter (JSF) and with the F-22 will place
greater demands on the need, as I understand it, for quality
ranges. Is that correct?
General Jumper. Sir, that's absolutely correct.
Senator Domenici. Do you share my view that airspace for
the Air Force will be at a premium in the future?
General Jumper. I do, indeed, sir.
Senator Domenici. All right. Why is it important that the
Air Force of the future control large training ranges and the
associated airspace?
General Jumper. Well, sir, the very speed of the airplanes
and the standoff distances of our weapons dictate ever-
increasing demands for airspace in an environment where that
airspace is decreasing. So, if you take, for instance, an F/A-
22 that can supercruise at 1.5 Mach, or a small-diameter bomb
that, when released, can glide out 65 miles to its target,
those parameters are much different than anything we've seen
with legacy airplanes in the past.
Senator Domenici. And we hear a lot about training without
having to do actual missions and actual in-the-field training,
but do you believe that live, realistic training aircraft, like
the JSF, will be critical to the combat success of those kind
of airplanes?
General Jumper. We'll never be able to substitute for all
of live training. There's no doubt about it. Certainly,
distributed mission training and distributed mission operations
will allow us to have our aircrews train with certain types of
platforms that are hard to get into the training environment,
especially surveillance platforms. And we'll do that in a
distributed way.
There will be some training with next-generation munitions
that we'll do in a simulator environment. But, in the end, you
can never substitute--and, as a matter of fact, the great
leverage that our airmen have is training, and the great
leverage that we have over other air forces in the world is our
ability to go out and do this live training, as you described.
Senator Domenici. Well, I would assume, with all that, that
it will be difficult to go out and obtain new facilities, new
airspace, new ranges to do this. Is that correct, General?
General Jumper. Absolutely, sir.
Senator Domenici. I look out in the West, and I don't see
where you'll get them.
General Jumper. Yes, sir.
Senator Domenici. Is that a----
General Jumper. It's going to be----
Senator Domenici [continuing]. Fair statement?
General Jumper [continuing]. It's going to be very
difficult to get more than we have, yes, sir.
Senator Domenici. And will not the JSF, which is a higher-
performance aircraft as compared with the F-16--will it not
need supersonic ranges for it--to complete its overland
training?
General Jumper. Sir, to a lesser extent than the F/A-22,
but, yes, similar to the F-16. But, still, that makes that
supersonic airspace very precious.
Senator Domenici. And why is it important that they be able
to train at supersonic?
General Jumper. Well, sir, you can't--in the modern
airplane, quite frankly, and you're in the middle of a fight,
you don't know when you've gone supersonic. So, if you're
having to pay attention to your airspeed indicator all the time
to make sure that you don't create that sonic boom and disturb
the people on the ground, whose support we need, then you're
paying attention to artificialities that you don't want to be--
have in your habit patterns.
Senator Domenici. So the same thing would be true as you
train.
General Jumper. Precisely, sir.
Senator Domenici. Thank you very much.
Senator Stevens. Thank you.
Senator Leahy.
Senator Leahy. Thank you. Thanks, Mr. Chairman.
COMMUNITY BASING INITIATIVE
General Jumper, we discussed this somewhat yesterday, but
the Air Force has currently launched an important community
basing initiative with the 158th Fighter Wing in the National
Guard. I'm well aware of it, because the 158th is in my home
State of Vermont. You're going to station active duty personnel
at Guard bases to work alongside their counterparts. I think
it's an excellent idea. It's going to allow the regular Air
Force to draw on the Guard's knowledge and expertise, and vice
versa. The F-16 pilots that are maintained at the Vermont Guard
have an incredible amount of experience. They are, of course,
the ones who flew cover over New York City after 9/11 around
the clock for some considerable period of time.
My understanding is that 12 Air Force personnel will be
coming to Vermont. We could accommodate an active duty
associate unit of at least 200 pilots and maintenance
personnel. I know a lot of other Guard units, very good Guard
units around--across the country could do that. Where do you
see this going? I know this is something you're looking at not
just for today, but where we are 3 years and 5 years down the
road. Where do you see it going?
General Jumper. Sir, Mr. Dominguez has been in the
personnel business in our Air Force before he became the Acting
Secretary, and he and the rest of us have been very involved in
making sure that the Air National Guard participates in the
missions that are in demand of our Air Force, as the active
duty also transforms itself--so, missions such as, not only the
flying mission, but space, information warfare, unmanned air
vehicles, et cetera. We want the Air National Guard and the Air
Force Reserve to participate in all of those.
We also want to make sure that, wherever we can, we have
the active and the Air National Guard working together. And
this is the case in the community basing idea, which we are
looking very much forward to testing, beginning this summer
when all of our people arrive.
I've told you that the Chief Master Sergeant of the Air
Force has been up to visit that unit, and his report was
absolutely outstanding. I have every confidence that this
experiment will be a success, and we'll look for other similar
opportunities to either grow this capability or put it
elsewhere. And I have a feeling that this model will be in
demand in several other places. So, it's a very good model,
sir.
FUTURE TOTAL FORCE
Senator Leahy. I have sort of a corollary question. I see,
in the Air Force's future total force, a disproportionate
number of tactical airplanes in the Guard being retired. And
I'm just wondering if we're, on the one hand, working with the
Guard, but, on the other hand, cutting back their ability to
carry out this integral part. And I'm not just singling out the
Air Force; I think everybody throughout the military command
are going to hear this question, whether it's the Army or the
Navy or whatever, because of the huge contribution the Guard's
been making in the last 3 years in all these branches.
General Jumper. Sir, our full intention is to bring the
Guard along with us. And, as you know, we have an associate
Guard relationship at Langley Air Force Base, Virginia, which
will be the first F/A-22 unit with the Air National Guard unit
in Richmond, Virginia. So, our intention is to, as I said
before, bring the Air National Guard into the main mission
stream, continue them into the main mission stream, as they
have been.
In the plans that we have, there is absolutely no intention
to bring down the end strength of the Air National Guard. So,
if there are cuts in personnel, those cuts will come out of the
active duty force.
With regard to the aircraft, we are simply trying to align
the hardware in the Air Force where the demands for the
missions exist. And we are doing that in full collaboration
with the National Guard. We have National Guard members on the
team that are working these issues. They are in the Pentagon
with us every single day working these issues.
So, I think it's with full visibility, sir, that we're
trying to do the right thing as our missions transform in the
Air Force.
Senator Leahy. Well, General, if you, and, Mr. Secretary,
if you, as this goes on, can you periodically give briefings to
my staff. I would really appreciate it. Thank you.
Thank you, Mr. Chairman.
Senator Stevens. Thank you, Senator.
Senator Dorgan is recognized for 5 minutes.
Senator Dorgan. Mr. Secretary and General, thank you very
much.
General, I understand this may well be the last time you
will appear before the Appropriations Committee as Chief.
General Jumper. Yes, sir.
Senator Dorgan. And let me just tell you that, from my
standpoint, I think you've done an outstanding job. I've
appreciate working with you. I think you've always been
straight with this subcommittee, and we appreciate your
service.
General Jumper. That's very kind, sir, thank you.
BASE REALIGNMENT AND CLOSURE
Senator Dorgan. Let me ask you about Base Realignment and
Closure (BRAC), base closing. What kind of excess capacity have
you indicated to the Secretary of Defense exists in the Air
Force? How much, and what kind of excess capacity?
General Jumper. Sir, what we did in the BRAC process was
lay out our military requirements. And in the military
requirements that have to do with range space and the necessity
to distribute ourselves properly around the United States to be
postured for various contingencies, either homeland
contingencies or deployment contingencies, we've laid out those
requirements, which then go into an analytical process.
So, sir, we, quite frankly, have not taken this as a base-
by-base issue. It's an overall requirements issue. And to keep
this process completely clean, I have absolutely stayed away
from any consideration of base-by-base matters.
Senator Dorgan. General, I understand that. That wasn't
what----
General Jumper. Yes.
Senator Dorgan [continuing]. I was trying to get at. My
question was, there have been--all of us, on this subcommittee,
I think, have read assessments that there's 20 percent excess
capacity here or there, or 15 percent or 25 percent, it's in
this area or that area. And that's the set of information that
gave rise to a BRAC.
General Jumper. Right.
Senator Dorgan. So I assume, coming from each of the
services, and all of the services, the notion of how much
excess capacity they had was a stimulant for the Department of
Defense (DOD) requesting a BRAC round. And I guess, I'm trying
to evaluate, not with respect to individual bases----
General Jumper. Right.
Senator Dorgan [continuing]. Or major installations----
General Jumper. Right.
Senator Dorgan [continuing]. What kind of excess capacity
do you think, or did you recommend, exist at this point?
General Jumper. We weren't asked the question exactly that
way, but if I give you my estimate, it was about 20 percent.
Now, that's just for the Air Force. As this goes into
consideration, joint usage comes into the equation, too. So
that 20 percent may become less as joint utilization options
also are considered.
Senator Dorgan. Are there categories in which that 20
percent exists relative to other categories, such as, in some
areas they talk about training, and other areas as having
substantial--or depots having excess capacity?
General Jumper. Um----
Senator Dorgan. Do you recall----
General Jumper [continuing]. Sir, I don't want to try--I
don't want to be overly specific here, because I'm not exactly
sure. It's not just training; it would be training and
education, for instance.
Senator Dorgan. Right.
General Jumper. So the categories are parsed out, the way I
understand it, and I don't want to sit here and quote what the
categories are, because I'm not sure I'd get it right. But, if
you don't mind, I'd take that for the record, if that's okay
with you----
Senator Dorgan. That's fine.
General Jumper [continuing]. And get that to you.
[The information follows:]
BRAC Excess Capacity Categories
The Air Force analyzed infrastructure capacity in terms of
installation categories, more specifically a set of
installations identified as ``major installations.'' A
parametric analytical technique was used which provided a rough
measure of excess capacity. The results of this methodology
provide a credible assessment of aggregate excess capacity.
The Air Force identified nine categories of supporting
infrastructure needed to support its current and future force
structure. The categories and aggregate excess capacity numbers
are broken down as follows: Administrative: 31 percent; Air
Force Reserve: 36 percent; Air National Guard: 34 percent;
Depots: None; Education and Training: 45 percent (classroom
space), 12 percent (ramp & supporting facilities); Missiles &
Large Aircraft: 27 percent; Small Aircraft: 16 percent; Space
Operations: 35 percent; and Labs Test Centers etc.: 18 percent.
This and a more detailed description may be found in the
Report to Congress on Base Realignment and Closure 2005, dated
March 22, 2004.
Mr. Dominguez. Senator, if I might, the answers to those
questions are in the analysis that General Jumper described and
these are rough-order-of-magnitude estimates, but the details
are being worked now.
Senator Dorgan. Right.
Mr. Dominguez. And so, the answers are still forthcoming,
sir.
Senator Dorgan. Well, there will be no small amount of
interest in all of these issues, in virtually every office here
on Capitol Hill.
AGING TANKER FLEET
Let me ask about tankers. In recent years, General, you
have come to us to talk about the aging tanker fleet and the
urgency with which that we deal with that. As you know, we've
proceeded with the 767 issue. That's gotten snarled in a number
of different ways. And so, the question is, Does the urgency
still exist? If so, where do you think we are? And I don't
see--at this point, we don't have, I think, a mechanism
underway to try to find a way around this. So give us your
assessment of the tanker-fleet situation.
General Jumper. Sir, I think that we are--we'll await the
outcome of the analysis of alternatives, which is formally
being done now, and expect to see the results of that in the
summertime. As soon as that analysis of alternatives is
complete, then we'll have a path ahead to start a formal
acquisition program. The urgency of recapitalizing the tanker
fleet, I think, grows every day, and my concern is if I lose
sleep over one thing at night, it's about the aging aircraft
problem and the corrosion problems we have, and it's especially
in our tanker fleet. So, I think that we will step out with all
urgency, once we see the analysis of alternatives, to get a
formal program underway, with all the provisions of the
acquisition process that have been a concern with the formal
proposal.
Senator Dorgan. Mr. Chairman, I will just conclude by
saying, I think of significant interest to all of us, as well,
is the issue of the Air Guard and the----
General Jumper. Yes, sir.
Senator Dorgan [continuing]. F-16s and all the related
issues of the Air Guard.
General Jumper. Yes, sir.
Senator Dorgan. And I want you, always, when you go to bed,
to remember the Happy Hooligans, who have--as you know, have
won the William Tell Trophy more than once and are, I think,
the best fighter pilots in the Air Force.
General Jumper. They're hard to forget, sir.
Senator Dorgan. Well, again, General, you've done a first-
rate job, and thank you very much for being here.
General Jumper. Very kind.
Senator Dorgan. Mr. Secretary, thank you.
Senator Stevens. Thank you all for your brevity.
F/A-22 PROGRAM
On the F/A-22, it's got a similar problem now, as I see it.
Am I wrong? We have a proposed reduction in procurement of the
F/A-22, and that's going to have some change in terms of future
investment and cost. What is the future operational impact of
this request to reduce the investment in the F/A-22 this year?
General Jumper. Sir, I think that if the number is, indeed,
reduced, as the proposal exists today, then we will be
returning with a request for something to fill in for those
capabilities.
Our proposal right now, if we lay out the Air Force
requirement, I would ask for about 380 F/A-22s that would
replace between 800 and 900 legacy airplanes. If we can't get
to that number, or if the number is significantly less than
that, then we'll have to come back and ask to fill in some of
those blanks with legacy airplanes. And, as I pointed out
earlier, I think those legacy airplanes will cost just about as
much as an F/A-22.
Mr. Dominguez. Senator, if I might, that exact question is
a thing that we'll be wrestling with through this summer in the
Quadrennial Defense Review, because they're going to be looking
at the air dominance problem and what's the best way to get to
air dominance and sustain it.
Senator Stevens. Well, that suggestion--really a request--
to reduce the investment that is in this budget is not being
too well received on Capitol Hill--what worries me is that
we're going to be faced with a demand to maintain the previous
level of procurement of F/A-22 and there have to be adjustments
elsewhere in the budget. Have you looked at that, the two of
you? Where if we have a vote that requires us to increase the
rate of procurement of the F/A-22 in 2006, what's that going to
do to the balance of the budget?
Mr. Dominguez. Sir, I don't believe----
Senator Stevens. It's 2008, she tells me. It's----
Mr. Dominguez. Yes, sir.
Senator Stevens [continuing]. 2008.
Mr. Dominguez. This is not a problem for the Congress in
the fiscal year 2006 appropriation. It is something we will
wrestle with--the program was terminated by Program Budget
Decision 753 in 2008, so this is a problem we must wrestle with
this summer, and we'll be communicating with you shortly after
that, sir.
Senator Stevens. These suggestions we're having--we're
receiving from other members to try to eliminate that impact in
2008, do you think that's premature?
Mr. Dominguez. I don't--I'm not aware of any decision
you're being asked to make this year, in this President's
budget, that will prejudice the issue, one way or the other.
General Jumper. And I think, Senator, considering this in
the Quadrennial Defense Review, as the Secretary of Defense has
promised, is the correct thing to do, and I think we'll be able
to answer these questions in plenty of time to affect a
decision that now doesn't impact us until 2008.
Senator Stevens. When's that due, General?
General Jumper. Well, it's due--the whole thing is due out
next February, but I think the major part of the work that's
going to go into the Quadrennial Defense Review is going to be
done this summer, and results will be forthcoming from that
this summer.
Senator Stevens. Senator Cochran, we have 9 minutes left on
that vote, I'm told.
Senator Cochran. Mr. Chairman, I appreciate the
recognition.
I wanted to just congratulate General Jumper and the
leadership of the Air Force on the fine job they're doing in
helping us protect the security of our country. You have a lot
of competing interests and demands for equipment, materiels,
funding, generally. It's a tough year to make choices and to
try to assign priorities. But I look forward to working with
them and with you and Senator Inouye in helping to support the
effort to be sure we get it right and that we fund those
activities that are important for our security needs.
I just would put my statement in the record, with your
permission. And, under the constraints we have for voting on
the floor, thank you for recognizing me.
[The statement follows:]
Prepared Statement of Senator Thad Cochran
Mr. Chairman, I am pleased to join you in welcoming these
two distinguished leaders of the Department of the Air Force.
I commend the outstanding efforts demonstrated each day by
our airmen. The country has come to expect air dominance in all
military conflicts, and our reliance on space assets is
significant and steadily increasing. The total Air Force, the
active duty, Guard, and Reserve, is playing a pivotal role in
the Global War on Terror, and not just in operations in Iraq
and Afghanistan. We also appreciate your homeland defense
mission, which includes daily patrols over United States
airspace.
I thank you both for your leadership, and for the service
of the women and men you represent. I look forward to your
testimony.
Senator Stevens. Thank you, Mr. Chairman. Thank you for
coming by.
General Jumper, you reflect well upon the education
received at the Anchorage High School.
General Jumper. Thank you, sir.
Senator Stevens. I want to tell you that your many friends
wish you well----
General Jumper. Thank you, sir.
Senator Stevens [continuing]. As you go through this final
year. And I, personally, look forward to being with you,
General.
ADDITIONAL COMMITTEE QUESTIONS
Secretary Dominguez, we're pleased to have you here with us
for the first time.
[The following questions were not asked at the hearing, but
were submitted to the Department for response subsequent to the
hearing:]
Questions Submitted to Michael L. Dominguez
Questions Submitted by Senator Robert C. Byrd
future total force
Question. Mr. Secretary, I am advised that as part of the
Department of Defense's transformation of its military forces, the U.S.
Air Force is developing an initiative known as ``Future Total Force
(FTF),'' which focuses on accelerated reductions of legacy weapons
systems and the procurement of newer weapons systems. Considering that
many of the legacy weapons systems are found at Air National Guard and
the Air Force Reserve units, would you please describe in detail the
impact of ``Future Total Force'' on these entities?
Answer. The traditional mix of Air National Guard, Air Force
Reserve and Active component aircraft has served the nation well in the
context of legacy platforms and traditional threats. However, as we
move into the 21st century, the Air Force faces increasing
modernization and recapitalization challenges, an adversary
increasingly hard to define, and strained budget realities. While we
possess weapon systems to meet today's challenges and are investing in
cutting edge technology and highly capable, highly trained personnel,
we must make transformational changes to maximize the capability these
advances give us. One way we will do this is through the Future Total
Force (FTF).
The FTF concept will enable the Air Force to meet the challenge of
ensuring a sustainable 20-year strategic vision. Through the use of
innovative organizational constructs such as associate units, we seek
to be better able to match the skills of our highly experienced Air
Reserve Component (ARC) personnel with our fewer, but more capable,
cutting edge weapon systems. This fundamentally changes an old paradigm
of putting Guard and Reserve in ``hand-me down'' systems and instead
puts them in front line systems with decades of relevancy. This new
force structure focuses on programs, forces and technology, as well as
new organizational concepts that strive to fundamentally improve the
effectiveness of our Active Duty, Guard and Reserve personnel and
systems. Ultimately, FTF is designed to provide the means for the Air
Force to improve its overall combat capabilities and continue to be a
primary enabler in joint operations.
In addition, the FTF vision does not mean taking flying missions
away from the Air National Guard without a viable, meaningful mission
to replace it. In fact, FTF will guarantee that both the Air Force
Reserve and Air National Guard are full partners as new weapons systems
like the F/A-22 and Joint Strike Fighter come on line. In addition, our
reserve components will be key players as we adopt emerging
technologies to fight the fight of the future, allowing them to be
involved in these exciting new missions, yet taking advantage of the
``reachback'' these missions provide, minimizing the need for
disruptive mobilizations.
Question. Under ``Future Total Force,'' what aircraft will be
retired and under what timeframe?
Answer. Future Total Force (FTF) is a fundamental element of Air
Force transformation. Comprised of two major components, 2025 Force
Structure and innovative organizational constructs, FTF will create
efficiencies, retain valuable human capital, and above all, increase
the combat capability across all Air Force components. Specifically,
this effort will divest the oldest and least capable aircraft in our
inventory, including the A-10, F-16, F-117, and older F-15 models. The
drawdown of some of these aircraft begins in fiscal year 2007 and
continues through 2025. A recapitalized force consisting of F/A-22s, F-
35s, and unmanned combat aerial vehicles (UCAVs) will replace legacy
fighters, whose average age today is more than 17 years.
Question. What safeguards are in place to ensure that while the Air
Force is reducing the current legacy aircraft inventory, it is not also
undermining the country's ability to protect itself from multiple
airborne threats?
Answer. In order to face uncertain threats of the future, the Air
Force must pursue aggressive divestiture of aging aircraft that are
increasingly expensive to operate, deliver less capability and
experience higher attrition rates. To determine the best course of
action, the Air Force Studies and Analysis Agency (AFSAA) ran a variety
of defense planning scenarios (with threats determined externally by
the Central Intelligence Agency, Defense Intelligence Agency, etc.)
against 14 force structure models. AFSAA determined the optimal force
structure, called the Future Total Force, requires retirement of aging
aircraft, primarily older model F-16s, C-130s and KC-135s. From a
business case perspective, the savings realized through this
divestiture are critical if we are to move into high-tech emerging
missions that will make the Air Force more relevant to the joint
warfighter well into the 21st century.
Because these emerging mission areas will provide an exponential
increase in capability, we will need the additional manpower and
capability resident in our Air National Guard and Air Force Reserve to
get the most ``bang for our buck.'' Using innovative organizational
constructs, members of the Active Duty, Guard and Reserve will work
side-by-side at unprecedented levels to achieve the crew ratios these
highly capable platforms demand.
Homeland Defense is the most vital mission responsibility of the
U.S. Air Force, and for that reason, the Air Force looked very closely
at what capabilities are and will be required for that mission. Those
capabilities requirements were identified and separated out of the mix
so as not to be jeopardized throughout the FTF analysis process. In
other words, at no time will the capabilities requirements necessary to
provide homeland defense be vulnerable to divestments or reorganization
efforts.
It is important to point out that exempting the capabilities
required for homeland defense does not necessarily isolate a particular
unit or installation from divestments or reorganization efforts. There
are many considerations that will help determine which units and
installations will be selected for FTF implementation, but primary
among these will be the impact on the Air Force's ability to provide
homeland security.
The FTF is a twenty-year plan. It will evolve over time and will in
fact enhance the Air Force's ability to protect the homeland.
Question. Does ``Future Total Force'' seek to reduce Air National
Guard personnel authorization? Could the accelerated pace of retiring
Air National Guard aircraft leave units and personnel without missions?
Answer. The Future Total Force (FTF) Plan does not seek to reduce
Air National Guard (ANG) personnel end strength. In order to face
uncertain threats of the future, the Air Force must pursue aggressive
divestiture of aging aircraft that are increasingly expensive to
operate, deliver less capability and experience higher attrition rates.
To determine the best course of action, the Air Force Studies and
Analysis Agency (AFSAA) ran a variety of defense planning scenarios
(with threats determined externally by the CIA, DIA, etc.) against 14
force structure models. AFSAA determined the optimal force structure,
called the Future Total Force, requires retirement of aging aircraft,
primarily older model F-16s, C-130s and KC-135s. From a business case
perspective, the savings realized through this divestiture are critical
if we are to move into high-tech emerging missions that will make the
Air Force more relevant to the joint warfighter well into the 21st
century.
Because these emerging mission areas will provide an exponential
increase in capability, we will need the additional manpower and
capability resident in our Air National Guard (ANG) and Air Force
Reserve to get the most ``bang for our buck.'' And, as I have stated,
ANG end strength will remain constant. Using innovative organizational
constructs, members of the Active Duty, Guard and Reserve will work
side-by-side at unprecedented levels to achieve the crew ratios these
highly capable platforms demand.
There is a common misperception that because the predominant number
of older model F-16s reside in Guard units that these units will be
left without a mission until they receive new, emerging missions, or
that they will lose their mission altogether. Nothing could be further
from the truth. The Air Force needs the experience and capability that
resides in the Guard and Reserve. Without it, we would be unable to
meet the needs of the Nation. Members of the Guard and Reserve will be
a part of all new weapons systems from their inception. In fact, we are
in the process of standing up a new associate relationship between the
Air National Guard and the Active Duty at Langley AFB, Virginia flying
the F/A-22.
Once basing decisions are made under Base Realignment And Closure
(BRAC), we plan to implement force structure plans through a
redistribution of airframes as well as the stand-up of new and exciting
emerging missions. Air National Guard end strength will be preserved.
An ANG unit may lose older model F-16s, but may get another weapon
system, even a newer airframe of the same model. Please be assured that
we will work with the National Guard Bureau to make any ANG unit
transition, if deemed necessary, as smooth as possible.
Question. Has the Air Force examined alternatives to modernizing
some current systems in the event that funding and procurement of new
weapons systems are delayed?
Answer. Modernizing and extending the service life of our aging
legacy fighter force will not replace the vital transformational
capabilities of the F/A-22 and the F-35. Tactical aircraft force
structure trades and capability mix considerations are currently being
studied in the Department's ongoing Quadrennial Defense Review Joint
Air Dominance Study Analysis. Results of this study will determine
modernization needs of our legacy fighter fleet.
Question. Has the ``Future Total Force'' initiative been presented
to the Adjutants General so that the total impact on the Air National
Guard (ANG) can be adequately assessed and reasonable alternatives can
be developed that allow the Air Force to modernize while, at the same
time, maintain an appropriate balance of Air National Guard assets so
the Guard can continue to accomplish its air sovereignty mission?
Answer. The Future Total Force (FTF) Plan has been communicated to
The Adjutant Generals (TAGs) through a variety of venues and means.
First, both the Secretary and the Vice Chief of Staff have spoken at
TAG meetings. Second, the TAGs have two colonel-level representative's
working in the Air Force FTF office, as well as a full-time
representative from the Guard Bureau. The Air Force convened a General
Officer Steering Committee to oversee FTF actions; there are three
Adjutants General who sit on that Committee.
The Air Force Directorate of Plans and Programs recently hosted a
classified meeting with the TAGs to share the entire Force Structure
Plan and to answer any questions the TAGs may have. Furthermore, the
ANG's Future Total Force office is working in lock step with the HQ
USAF FTF office, including attendance at Air Force/FTF staff meetings.
The Air Force will continue to work with both the Air Force Reserve and
the Air National Guard as we make decisions regarding the Air Force's
future.
Homeland defense, to include air sovereignty, is the most vital
mission responsibility of the United States Air Force, and for that
reason, the Air Force looked very closely at what capabilities are and
will be required for that mission. Those capabilities requirements were
identified and separated out of the mix so as not to be jeopardized
throughout the FTF analysis process. In other words, at no time will
the capabilities requirements necessary to provide homeland defense be
vulnerable to divestments or reorganization efforts.
Question. Mr. Secretary, in representing a state where the Army and
Air National Guard Forces represent, by far, the most significant
military presence, it is my very strong hope that transformation can be
accomplished without undermining National Guard personnel and its
assets. Please respond for the record what you will do to make sure
that the Guard's interests are represented in this process.
Answer. The Future Total Force (FTF) Plan has in fact been
communicated to The Adjutant Generals (TAGs) through a variety of
venues and means. First, both the Secretary and the Vice Chief of Staff
have spoken at TAG meetings. Second, the TAGs have two colonel-level
representative's working in the Air Force FTF office, as well as a
full-time representative from the Guard Bureau. The Air Force convened
a General Officer Steering Committee to oversee FTF actions; there are
three Adjutants General who sit on that Committee.
The Air Force Directorate of Plans and Programs recently hosted a
classified meeting with the TAGs to share the entire force structure
plan and to answer any questions the TAGs may have. Furthermore, the
ANG's FTF office is working in lock step with the HQ USAF FTF office,
including attendance at Air Force/FTF staff meetings. The Air Force
will continue to work with both the Air Force Reserve and the Air
National Guard as we make decisions regarding the Air Force's future.
______
Questions Submitted to General John P. Jumper
Questions Submitted by Senator Ted Stevens
personnel structure
Question. As the Air Force continues to transform to meet the
challenges of today and the future, what is your plan to shape and
balance the personnel structure in the Air Force?
Answer. The Air Force's ongoing Force Shaping program is still on
track to ``right size'' the Active Duty end strength to the
congressionally mandated level of 359,700 Airmen by the end of fiscal
year 2005. We were able to successfully draw down approximately 22,000
Airmen in excess skills predominantly by waiving service commitments,
reducing accessions, and allowing transfers to the ``Total Force''
(through PALACE CHASE) and to the Army (``Blue-to-Green'').
As the Air Force returns to authorized end strength, we will
continue ``right shaping'' efforts by providing relief to overstressed
career fields through recruiting, retention, and retraining
initiatives. We have focused fiscal year 2005 recruiting efforts
towards the 58 most critical combat and combat support specialties.
Additionally, where we are experiencing shortfalls, we have targeted
our bonus programs in order to retain our Airmen. Finally, we have
restarted our Career Job Reservation program and implemented a robust
retraining program migrating excess Airmen to shortage career fields.
However, as the Air Force corrects our active skill imbalances by
realigning manpower and expanding training pipelines, the Total Force,
to include our civilian workforce and the Air Reserve Component (ARC),
will play a critical role in rebalancing the force for the future. We
will continue initiatives that produce greater efficiencies through
military-to-civilian conversions and competitive sourcing.
Additionally, with the Guard and Reserve volunteers providing greater
participation in our air expeditionary packages, we will take
appropriate ``right shaping'' steps to ensure long-term health of both
our Active Duty and ARC forces. As we move forward, we will constantly
review our Active/ARC mix across all of our mission areas.
program management
Question. Space is very important for our national security. We
seem to be experiencing cost growth problems in some of our space
programs. What steps is the Air Force taking to improve program
management and to control costs of our important space programs?
Answer. The Department has reorganized to vest many space
responsibilities and authorities with one individual. We continue to
refine the space acquisition decision-making process. One change is the
creation of National Security Space (NSS) Acquisition Policy 03-01.
Hallmarks of NSS 03-01 include: OSD-led independent cost estimates at
each key decision point and build approval, increased attention on
technology maturation, requirements documentation advanced earlier in
the program cycle, acquisition phases aligned with key design reviews,
and an emphasis on management reserve as key to acquisition success.
We find ourselves trying to manage programs in the non-recurring
research and development field where the government program manager has
inadequate reserve to apply to problems as they occur. As a result,
problems that occur in the development phase of some of our very
complex satellite systems take months before help is on the way in the
form of additional resources to solve problems. In those months, those
problems have festered and gotten worse. We can do better as a
community working with Congress to give some flexibility to government
program managers that are developing these complex systems. One of the
features is an ability to maintain a reserve that can be applied to a
problem without months of delay.
We still need to make improvements in our program management
processes. While we have confidence in the overall skills and
experience in our personnel, we need to establish processes that will
improve our ability to manage our programs in this environment.
Therefore, significant efforts are underway to identify and develop
Space Professionals, particularly within the acquisition corps. The
System Program Director (SPD)/Program Manager (PM), as the leader of
the Government-Contractor team for a program, must be accountable and
have the authority to accomplish the program's objectives and meet the
user's needs. The Air Force recognizes that improving program
management is critical for bringing program costs under control, and
that such effective program management must include both contractor and
Government program managers at all levels within their respective
organizations. Further, these managers must be empowered to make not
just the routine but also the controversial decisions based on timely,
accurate, and complete information. We are also addressing continuity
by instituting controlled tours for SPDs/PMs at Space and Missile
Systems Center (SMC). Another aspect of growing our team of space
professionals is continuing to improve system engineering training and
discipline. The formation of SMC's Systems Engineering Center is a
positive first step that we need to continue to cultivate in order to
grow our cadre of experienced space systems engineers.
The NSS 03-01 policy documents several principles important to
controlling and managing costs of our space systems. First is using
mission success as the primary driver when assessing risks and trades
among cost, schedule and performance. Mission success drives risk
management, test planning, system engineering and funding profiles. The
second principle centers on credibility. The NSS process is meant to
encourage incentives and foster quality decision making for programs
that exhibit necessary maturity to proceed into the next acquisition
phase. The third principle, cost realism, is key in that the cost
estimating capability shall be independent and accomplished in a
timely, realistic, and complete manner. Finally, the new Joint
Capabilities Integration and Development System (JCIDS) process helps
program managers address cost growth driven by uncontrolled
requirements growth by taking steps to ensure stability and
predictability in identifying requirements for the acquisition
community. To ensure warfighter input prior to firming up design
concepts, NSS 03-01 requires a Joint Requirements Oversight Council-
approved Initial Capability Development Document (CDD) prior to
entering the concept development phase. A refined CDD is required prior
to commencement of the preliminary design phase.
Although we have the ability to generate good cost estimates today,
we need to merge this with better schedule estimating to come up with
better phasing of near-year estimates. The nature of our
transformational space programs means that problems that are common to
all acquisitions are significantly greater due to their degree of
complexity. We need to ensure that program managers get good data as
early as possible to make informed decisions.
While cost estimating is not an exact science, we've put in place a
system to ensure past experience and solid costing methods are used and
will lead to realistic cost numbers. The Independent Cost Estimate
(ICE) is effective in giving the program's milestone decision authority
(MDA) a comprehensive estimate. All elements of cost are considered
when deciding when or if to proceed with a space system. The ICE is a
requirement for each Defense Space Acquisition Board (DSAB) meeting
when the MDA approves the program's entrance into the next phase of the
space acquisition process. We will continue to apply rigor in budgeting
to the ICE, with the goal of securing additional management reserve to
plan for the unforeseen issues that are certain to arise.
space radar
Question. Last year, the Appropriations Conference report expressed
concern over the ability of the Space Radar (formerly the Space Based
Radar) program to attain its goal of ``global persistent surveillance''
and whether the system is affordable. What changes has the Air Force
implemented to make this a viable and affordable program?
Answer. We have formulated and revised our fiscal year 2005 funding
plan and redirected our prime contractors to comply with last year's
Congressional language.
We plan to achieve a militarily significant level of global
persistent surveillance through horizontal integration with other
Intelligence, Surveillance, and Reconnaissance (ISR) platforms and
target characterization technologies. Horizontal integration allows us
to tip and cue targets of interest to air and space ISR platforms
passing ``target custody'' to the best situated collector to satisfy
the mission. In addition, when other ISR platforms are not available,
we can use target characterization to re-identify targets in subsequent
Space Radar (SR) satellite passes over an area of responsibility. The
number of satellites required to support this ``custody'' Concept of
Operation (CONOP) for persistence is significantly fewer than that
required for a tracking CONOP, consequently reducing overall program
costs while delivering equivalent utility to DOD and intelligence
community users.
In addition, in order to improve affordability, we have made major
program changes such as the establishment of SR as a single acquisition
program that would satisfy both the DOD and Intelligence Community
needs. This single shared system would eliminate the need for two
programs or funding lines, thereby eliminating duplication of costs.
Another fundamental change was to increase the focus on developing the
Electronically Steered Array and other advanced technologies as part of
an overall risk reduction framework culminating in an on-orbit
demonstration to reduce technical and cost uncertainties. An
Independent Technology Assessment Panel was also formed to explore
concepts that could dramatically affect the SR cost-benefit equation.
Results of this effort are due summer of fiscal year 2005. We are also
evaluating architecture options concentrating on reuse of existing
infrastructure to minimize SR ground investment costs.
Over the span of five months, we ensured that contract
modifications were in place that would shift the majority of funding to
risk reduction efforts. The implementation of these efforts is intended
to address the fiscal year 2005 Congressional language and their
culmination will lead to a more affordable SR architecture.
______
Questions Submitted by Senator Thad Cochran
tactical air traffic control
Question. The Air Force and the Air National Guard have the
critical mission of air traffic control in operational theaters. These
airmen perform a difficult mission. However, the equipment the air
traffic controllers use was developed long before many of them were
born. Could you describe the efforts the Air Force is taking to
modernize tactical air traffic control systems for the Air Force and
the Air Guard?
Answer. The Air Force is modernizing Air Force and Air National
Guard tactical air traffic control (ATC) systems by acquiring a new
mobile air traffic control radar known as the Mobile Approach Control
System (MACS). MACS will replace the Air Force's 1970's vintage TPN-19
and the Air National Guard's 1960's vintage MPN-14K analog radar
systems. Due to their advanced age, the TPN-19 and MPN-14K have many
obsolete components. The difficulty in obtaining replacement parts has
made these aging systems difficult and expensive to maintain and has
resulted in operational availability rates of only 70-85 percent, far
short of the 98 percent availability standard. MACS will be easier and
less costly to deploy, requiring only three C-130s to airlift it versus
seven for the TPN-19 and MPN-14K. The digital systems in MACS will
allow it to share radar information with other ATC and non-ATC systems,
a capability not provided by the currently fielded systems. This could
enhance our ability to provide the type of en route ATC we found we
needed in Afghanistan and Iraq.
Question. The Air Force and the Air National Guard have the
critical mission of air traffic control in operational theaters. These
airmen perform a difficult mission. However, the equipment the air
traffic controllers' use was developed long before many of them were
born. Is the Air Force capable of meeting the combatant commanders'
tactical air traffic control needs with the current arcane system?
Answer. Although the Air Force has not lost any missions due to air
traffic control, our maintenance downtime is significant and we have
been fortunate to have relatively good weather when our systems have
needed repair. The current Air Force and Air National Guard systems are
operational 70-85 percent of the time, while the benchmark goal is for
them to be available at least 98 percent of the time.
______
Questions Submitted by Senator Richard C. Shelby
unmanned aerial vehicles (uavs)
Question. I have been advised that the Department of Defense (DOD)
is considering designating the Air Force as the DOD Executive Agent for
unmanned aerial vehicles (UAVs). Why do you believe Executive Agency is
necessary? And why is the Air Force the best candidate to take control
of UAVs?
Answer. The United States Air Force (USAF) is not in a position to
speak for the Office of the Secretary of Defense (OSD), the agency with
responsibility of determining the requirement for any Executive
Agency's establishment. The USAF would, however, welcome the
synchronization and harmonization of UAV efforts across DOD that should
result from OSD's establishment of a UAV Executive Agent. Of the
Services, the USAF is in the unique position of possessing the
necessary airspace, intelligence, and aviation frequency management
experience necessary to coordinate and synchronize UAVs across the
Joint Force. No other Service has as much expertise in coordinating the
use of airspace and air-developed Intelligence, Surveillance &
Reconnaissance in peacetime and warfare to support the Soldier, Marine,
Sailor, and Airman from foxhole to near space and beyond.
Question. How does the warfighter benefit from this effort to take
UAV work away from one Service and consolidate it with a Service with
less experience?
Answer. Should the Office of the Secretary of Defense decide to
create a UAV Executive Agent, the warfighter will benefit from the
resulting synchronization and integration of UAV systems and the
effects they create on the joint battlefield. Rather than seen as
moving UAV work between Services, Executive Agency is more properly
framed as coordination and synchronization of air assets and the
effects they generate, regardless of type and size, to produce the
capabilities required by the Joint Force today and far into the future.
Thus an Executive Agent would aid but not subsume the work of any
Service by coordinating efforts across the DOD in areas such as
airspace management and the collection and distribution of UAV
generated information.
Question. Setting up a single authority for all Service UAVs is the
unmanned equivalent of establishing an Executive Agent for all manned
aircraft. How do you justify this?
Answer. Today, we find ourselves in circumstances similar to the
early development of manned flight, a debate over aviation-produced
effects on the battlefield. Experience and debate over time has created
an imprecise and often overlapping synchronization of aviation roles
and missions across the Services. Currently, we are in the infancy of
UAV development; each Service is rapidly expanding the role UAVs play
in contributing to joint warfighting capabilities. UAVs, like all
aircraft, pose the capability of operating and creating effects at all
levels of warfare, often simultaneously, regardless of size or Service
affiliation. Projected DOD budgets and rapidly increasing UAV's
capabilities mean that the coordination of UAV roles and missions
within the DOD will become increasingly necessary in the future. The
designation of one agent to ensure the DOD does not squander its
resources by creating unnecessarily redundant capabilities early in the
history of UAVs will head off much of the debate and duplication of
effort which has resulted from the service-centric development of
manned aircraft.
Question. What percent of tactical UAVs are currently being
employed by the Air Force in theater?
Answer. Tactical UAV is defined as anything smaller than a
Predator. Currently, the Air Force has 53 percent of our Air Force
Special Operations Command (AFSOC) and Security Forces small tactical
UAVs supporting the Global War on Terrorism (GWOT). Specifically, AFSOC
has 22 of 54 (41 percent) systems and Security Forces has 17 of 20 (85
percent) systems in support of the GWOT.
Question. Your staff provided my office with no statistics on
flight hours for Air Force ``small UAVs.'' We were told the ``Air Force
does not keep these types of statistics for its small UAVs.'' How can
you defend the decision to make the Air Force Executive Agent over
tactical UAVs when you don't even log the minuscule amount of flight
hours for your own tactical UAVs?
Answer. The Office of the Secretary of Defense (OSD) is currently
defining what a UAV Executive Agent's role would be in the event one is
designated. The designation of specific UAVs as tactical--operational--
or strategic is artificial. In many cases the designation small and
large is also ambiguous, since size may improperly characterize the
impact of the capability the UAV provides. However, the Air Force does
capture flying hour costs associated with tactical UAVs considered
Major Weapons Systems (MWS) such as Predator. Funding for ``small''
tactical UAVs, which are not designated as MWS aircraft, are captured
at the unit-level due to their very low operational costs. All Services
are moving toward what is envisioned, as a net-centric form of warfare
where information developed from any source is available to everyone
with access to the network. This means that UAVs of every sort and size
will be providing information to the Global Information Grid. The
United States Air Force (USAF) has the preponderance of experience
within the DOD in management of airspace and the collection and
distribution of air generated information. Debate over UAV Executive
Agency is more properly framed as coordination and synchronization of
air assets and the effects they generate, regardless of type and size,
to produce the capabilities required by the Joint Force today and far
into the future. The USAF is the Service with the most experience in
managing airspace and the collection and distribution of air generated
information. The USAF stands ready to perform the Executive Agency role
if called upon by OSD.
Question. Without flight information, doesn't this basically mean
you don't even know how, where, and when your own UAVs are flying?
Answer. The lack of flight information referenced in this question
is not well defined. In the past, the management of UAVs was not like
that of fixed wing aircraft. One of the lessons learned from the
unexpected proliferation of UAVs is the need to, in some but not all
cases, coordinate UAVs like fixed and rotary wing aircraft.
Operationally, several UAV aircraft fly above the coordination altitude
on a battlefield and all are tracked at the Joint Force Air Component
Commander's Air Operations Center. They are flown in accordance with
the Air Tasking Order, providing visibility and accountability on how,
where, when and why they are flown. Backpack UAVs, on the other hand,
are designed to be launched and controlled by personnel engaging in a
fluid tactical environment, and are de-conflicted in most cases by
flying below the coordination altitude. Taking into account the limited
capability of these smaller UAVs and the nascent stage of net-centric
warfare, current airspace coordination procedures do not require the
Services to specifically track how, when, and where backpack UAVs are
flying. Requiring tactical users to integrate their use on the
battlefield below the required airspace coordination altitude would
currently place an undue burden on the Soldiers, Airmen, Marines, and
Sailors operating them. In the future, the proliferation of these UAVs
on the battlefield, and their increasing payload capabilities, may
require coordination and monitoring within, and across, all the
Services and Agencies engaged in joint warfare.
future total force
Question. Future Total Force (FTF), as currently proposed by the
Air Force, presents a significant challenge to our citizen-airmen
because it disproportionably impacts the Air National Guard. Currently,
the Air National Guard maintains at least one flying unit in every
state. This structure is a vital component to homeland defense.
How do you propose securing our homeland or responding to a major
disaster when no units are available to our Governors because FTF has
removed them?
Answer. Homeland defense is the most vital mission responsibility
of the United States Air Force, and for that reason, the Air Force
looked very closely at what capabilities are and will be required for
that mission. Those capabilities requirements were identified and
separated out of the mix so as not to be jeopardized throughout the FTF
analysis process. In other words, at no time will the capabilities
requirements necessary to provide homeland defense be vulnerable to
divestments or reorganization efforts.
It is important to point out that exempting the capabilities
required for homeland defense does not necessarily isolate a particular
unit or installation from divestments or reorganization efforts. There
are many considerations that will help determine which units and
installations will be selected for FTF implementation, but primary
among these will be the impact on the Air Force's ability to provide
homeland security.
The FTF is a twenty-year plan. It will evolve over time and will in
fact enhance the Air Force's ability to protect the homeland.
Question. Under the Future Total Force plan, there appears to be a
significant time lapse between when airframes are removed from a unit,
and when that same unit would receive a follow-on mission. What do you
propose to do with those airmen in that timeframe?
Answer. First, a little background on the Air Force's effort to
meet the concurrent challenges of increasingly complex threats to our
national security and budget pressures, two issues with which you are
very familiar. Last year, Congress asked the Secretary of Defense to
submit a 20-year Force Structure Plan. Based on two assumptions: (1)
the capabilities required for the future and (2) the anticipated levels
of funding for the Department of Defense. After a significant two-year
internal Air Force debate (including full participation from the Air
National Guard and Air Force Reserve at many points along the
development process), the Air Force submitted its proposed plan for the
Future Total Force (FTF). This plan recommended divesting the oldest
and least capable aircraft in our inventory. These older and less
capable aircraft are predominately located in Air National Guard units.
It is important to note that simply identifying the oldest
platforms for divestment does not mean there won't be other platforms
that will ``roll-down'' to replace the current systems. Discussions to
this effect have been ongoing during the Base Realignment and Closure
(BRAC) deliberation process. However, these deliberations, by law,
cannot be made public until recommendations are given to the BRAC
committee in May of 2005. The planned divestment of aircraft will
happen over a 20-year timeframe. If we are going to eliminate a
particular mission and it is replaced with another mission, we will
time that transition so as to avoid a costly lag period that would
leave a unit without a mission. In short, we will ensure that units
have a meaningful mission to meet the needs of the Nation. In addition,
analysis included the very important requirements of the Homeland
Defense missions and other State roles performed by our Air National
Guard units.
Question. Recruitment for the National Guard is down. Would you
agree that removing units from states, therefore forcing Guardsmen to
travel long distances for drill weekends, will only hurt recruitment?
Answer. Yes. Recruiting is currently down in the Air National
Guard, specifically non-prior service (NPS) recruiting. Currently, only
meeting 65 percent of NPS goal to date.
We do understand that removing units from states will not only
affect recruiting, but retention as well. As we transition through
Future Total Force and Base Realignment And Closure, we will be asking
our members to move, retrain into another career field, or leave
earlier than expected. We do anticipate some unexpected losses, thus
having to recruit to these losses. However, we must move forward with
these transitions to new missions to not only remain relevant, but to
also support the war fighter of the future.
Our plan to combat this potential problem is to use all the
personnel force management tools available, to include incentives,
transition authorities, and training opportunities. Additionally,
leadership will undoubtedly play a large role in the transition to new
missions. We will continue to take great care of our members, as we
have in the past. We have always had one of the best retention rates
and plan to keep it that way.
Question. Recruitment for the National Guard is down. Do you have
any plan as to how you will combat this problem?
Answer. Yes. Recruiting is currently down in the Air National
Guard, specifically non-prior service (NPS) recruiting. Currently, only
meeting 65 percent of NPS goal to date.
We do understand that removing units from states will not only
affect recruiting, but retention as well. For example, prior to the
move of the 126th Air Refueling Wing (ARW) from Chicago, Illinois to
Scott Air Force Base, Illinois, their unit end strength was 104.2
percent. After we moved the unit, their end strength dropped to 83.3
percent. Over 25 percent of the 126th ARW personnel were lost due to
the move. It took five years to return the end strength of the unit to
previous levels.
As we transition through Future Total Force and Base Realignment
And Closure, we will be asking our members to move, retrain into
another career field, or leave earlier than expected. We do anticipate
some unexpected losses, thus having to recruit to these losses.
However, we must move forward with these transitions to new missions to
not only remain relevant, but to also support the war fighter of the
future.
Our plan to combat this potential problem is to use all the
personnel force management tools available, to include incentives,
transition authorities, storefront recruiters, and training
opportunities. Additionally, leadership will undoubtedly play a large
role in the transition to new missions. We will continue to take great
care of our members, as we have in the past. We have always had one of
the best retention rates and plan to keep it that way.
Question. It is my understanding that the Guard will lose 60
percent of their airframes due to the newer F-22 and JSF coming on-
line. In the past, both the Air Force and Guard leadership have stated
that due to FTF, end strength won't be reduced. However, if there are
fewer planes, and therefore less airtime for the same amount of Guard
personnel, what will these Guardsmen be doing?
Answer. First, a little background on the Air Force's effort to
meet the concurrent challenges of increasingly complex threats to our
national security and budget pressures, two issues with which you are
very familiar. Last year, Congress asked the Secretary of Defense to
submit a 20-year Force Structure Plan. Based on two assumptions: (1)
the capabilities required for the future and (2) the anticipated levels
of funding for the Department of Defense.
After a significant two-year internal Air Force debate (including
full participation from the Air National Guard and Air Force Reserve at
many points along the development process), the Air Force submitted its
proposed plan for the Future Total Force (FTF). This plan recommended
divesting the oldest and least capable aircraft in our inventory. These
older and less capable aircraft are predominately located in Air
National Guard units. Again, our Force Structure Plan does not
specifically identify who would have responsibility for the particular
equipment under a specific organizational construct, or where the
remaining aircraft will be based. It is important to note that simply
identifying the oldest platforms for divestment does not mean there
won't be other platforms that will ``roll-down'' to replace the current
systems. Discussions to this effect have been ongoing during the Base
Realignment And Closure (BRAC) deliberation process.
The planned divestment of aircraft will happen over a 20-year
timeframe. If we are going to eliminate a particular mission and it is
replaced with another mission, we will time that transition so as to
avoid a costly lag period that would leave a unit without a mission. In
short, we will ensure that units have a meaningful mission to meet the
needs of the Nation. In addition, analysis included the very important
requirements of the Homeland Defense missions and other State roles
performed by our Air National Guard units.
Another aspect of the FTF plan is to increase the ``association''
of all three Components--Active, Guard and Reserve, in order to produce
the most effective organizations and preserve the benefits of the
highly experienced Guard and Reserve personnel. One example is the
Chief of Staff of the Air Force FTF Test Initiative at Langley Air
Force Base where the Virginia Air National Guard's 192nd Fighter Wing
will begin to fly the F/A-22 at the same time as the Active Duty in an
Associate Unit arrangement with the 1st Fighter Wing. This
fundamentally changes an old paradigm of putting Guard and Reserve in
``hand-me down'' systems and instead puts them in front line systems
with decades of relevancy. In addition to units such as the association
at Langley, an important part of our plan is to increase the number of
``active associate'' units. That is, units in which an Active Duty unit
is located at a Guard or Reserve location. The Air Force is highly
cognizant of the value our Air Reserve Component bases bring to their
surrounding communities, as well as the sensitivities to considerations
such as recruiting demographics our Reserve and Guard Components must
enjoy in order to be successful. Please know that the FTF effort is
mindful of the different cultures that reside across our three.
Question. Do you really believe a trained pilot or maintainer would
happily take a desk job?
Answer. The Future Total Force (FTF) vision does not simply mean
taking flying missions away from the Air National Guard without a
viable, meaningful mission to replace it. In fact, units of all
components of the Air Force face significant change as we work to shape
the optimal force to meet future threats.
The FTF will guarantee that both the Air Force Reserve and Air
National Guard are full partners as new weapons systems like the F/A-22
and Joint Strike Fighter come on line. In addition, our reserve
components will be key players as we adopt emerging technologies to
fight the fight of the future, allowing them to be involved in these
exciting new missions, yet taking advantage of the ``reachback'' these
missions provide, minimizing the need for disruptive mobilizations.
SUBCOMMITTEE RECESS
Senator Stevens. Our next hearing of the Defense
Subcommittee will be a closed session to discuss the 2006
budget request for intelligence. That's scheduled for April 13.
A classified memo will be available to Senators for review,
beginning Monday, April 11. The memo is located in Dirksen,
119. Arrangements can be made for individual Senators to view
that memo elsewhere if they contact the staff.
We do appreciate both of you for being here with us today,
and your brevity, and wish to thank you, again, for your
service, and thank you for, through you, all the men and women
who wear your uniform so well.
General Jumper. Thank you, sir.
Senator Stevens. Thank you very much.
[Whereupon, at 10:10 a.m., Wednesday, April 6, the
subcommittee was recessed, to reconvene subject to the call of
the Chair.]