The public opinion pendulum seems to be swinging away from the post-9/11 clamor to enhance our homeland security readiness, even while the threats to the US proliferate and evolve. What does that mean for a service that is both a law enforcement agency and a military service?
The Coast Guard’s dual military/law enforcement status is a rare exception to posse comitatus, which requires the service to balance Title 10 and Title 14 responsibilities. In its law enforcement capacity, the Coast Guard must be judicious in its observance of legal procedures and careful to cultivate the trust of the American public. As a military service that provides critical capabilities to the Joint Force, the Coast Guard must train and equip for defense operations that demand a combat-oriented skillset and ethos. Recent events remind us of why it remains important to keep those roles distinct, even as our enemies make it ever more difficult to distinguish criminals from combatants.
Law enforcement agencies in the United States recently came under national scrutiny as a result of indications that the public is growing alarmed at the “militarization” of US police forces. The civil unrest in Ferguson, Missouri brought the issue to a head when images of local police confronting protestors while outfitted with camouflage uniforms, heavy body armor, and assault rifles streamed across major media outlets with the effect of further escalating the already volatile situation. The controversy over police wielding military-grade equipment elicited a promise for Congressional review by the Senate Armed Services Committee and a personal letter from House Armed Service Committee member Duncan Hunter to Defense Secretary Hagel encouraging a formal review of a federal program that allows DoD to transfer excess military equipment to police forces.
This latest outcry reminds us of an inexorable truth: free societies tend to vacillate about their desire for security. From Athenians condemning Themistocles to exile after the Persian menace waned, to the widespread vilification of the Patriot Act within the US only a few years after its near-unanimous passage, history demonstrates a consistent pattern wherein an existential threat will motivate the populace to demand greater security from their government, only to later denounce those same security measures once the threat appears to dissipate.
For the US Coast Guard, the recent backlash against militarized police is cause for reflection. The Coast Guard relies on a high degree of public confidence to maintain its dual status as both a law enforcement and military organization. Any erosion of that confidence compromises its ability to fulfill its diverse mission set. Yet there can be little doubt that it has adopted a much more overtly military appearance in recent years. The twin catalysts of 9/11 and Hurricane Katrina produced major organizational changes in the service’s missions, capabilities, and identity. The most readily-apparent difference is the enhanced security posture the service adopted to mitigate the terrorist threat to the homeland. The Coast Guard added Maritime Safety and Security Teams and a Maritime Security Response Team, and aligned itself closer to the Department of Defense both for Homeland Defense missions and contingency operations abroad. Coast Guard response boats patrol our waterways with crew-served weapons mounted, armed Coast Guard helicopters circle the Capitol daily, and Coast Guardsmen perform a variety of maritime security missions in SWAT-like tactical gear. The result is that the Coast Guard’s public image has evolved from a primarily humanitarian, life-saving and law-enforcement service that performs a combat role in time of war, to one that remains all of those things, but also wields distinctly-military capabilities close to home and in full view of the American public.
So far, the Coast Guard has not been subjected to the condemnation currently being heaped upon other domestic law enforcement agencies. However, with public confidence in government nearing an all-time nadir and many Americans weary of war abroad and enhanced security measures at home, the service must consider how it will continue to balance its domestic security responsibilities with its humanitarian and law enforcement missions.
That balance promises to grow ever more difficult in the future. Once-clear lines separating criminals from terrorists and military forces are blurring into amorphous inter-dependent networks labeled simply “irregular threats.” Confronting irregular threats and irregular warfare (CIC/IW) garners a lot of attention within DoD, but its ambiguous nature frustrates attempts to frame a consistent interpretation of where such threats transition from a law enforcement to a military responsibility. The Coast Guard seems ideally suited for taking a lead role in the CIC/IW mission due to its statutory authority and operational capability to act in both capacities, but there is risk to that approach because American principles have historically required maintaining a bright line between the two. The challenge for the Coast Guard will be determining how best to leverage the authorities and capabilities that make it well-adapted for CIC/IW, while remaining within legal boundaries and out of the crosshairs of public condemnation. Equally challenging will be preserving the service’s humanitarian reputation (critical for gaining access to regions wary of US military presence) while some Coast Guard sub-communities evolve to more closely resemble their DoD brethren.
Relaxing the Coast Guard’s domestic security posture is certainly not the right answer. Doing so would be a gross abdication of its homeland security responsibility. Many will recall that the modal conclusion that emerged from numerous post-9/11 “how did this happen?” tribunals was that the clues were there that should have alerted us to improve our security measures, but for a variety of reasons we choose not to. The universal vow that followed was “never again.” Thirteen years hence, we are perhaps reaping the consequences of our own success (at great cost and sacrifice that few fully comprehend) in preventing another major attack on the homeland. To many, the threat is simply not salient enough anymore to justify remaining loaded for bear on the homefront. Yet compared to the current security environment, the decade leading up to 9/11 seems like a halcyon era of relative tranquility. Bin Laden is dead, but that fact is little solace amidst the unraveling of Iraq and Syria, rampant narco-violence throughout the Western hemisphere, sophisticated horizontal weapons proliferation to non-state actors, and technical accelerators that are producing dangerous new capabilities available for commercial consumption. At no time in the nation’s history has “semper paratus” demanded a higher degree of readiness from its Coast Guard.
So how does the Coast Guard maintain necessary readiness without triggering the ire of a war and security-weary public?
Foremost, it must have a convincing strategic narrative that informs the public why an assertively-postured Coast Guard is in their best interest. That narrative needs to clearly detail the nature and magnitude of the threat, what capabilities the Coast Guard needs to confront that threat, and why the Coast Guard’s enhanced domestic readiness does not undermine American civil liberties or detract from its humanitarian missions.
The Coast Guard has done pretty well in this respect so far. The avuncular “Smokies of the Sea” image from the 80s and 90s evolved into “America’s Maritime Guardian” and the “Shield of Freedom” images after 9/11. Media coverage of the service during the Hurricane Katrina response and on popular television shows such as Coast Guard Alaska and Miami help to educate the public on the breadth of the missions that the Coast Guard performs. But more work remains. Evolving attitudes toward issues that the Coast Guard is directly involved with promise to invite more scrutiny into how and why the Coast Guard performs some missions. For example, how does growing support for legalization of certain drugs affect the cost/benefit calculation of further prosecuting the drug war and the related threats posed by narco-terrorism? Does it continue to justify, for example, employing airborne use of force against non-compliant drug smugglers? What about illegal immigration? Those and other missions will certainly come under scrutiny in the future and the Coast Guard must be ready to justify its policies. The best way to maintain support for robust interdiction capabilities is to reinforce their importance to maritime security and conduct them with irreproachable skill and professionalism.
Communicating a clear strategic narrative is not just for public consumption. The Coast Guard needs to internalize it as well. Coast Guardsmen need to understand the precarious balance that their unique status demands and why that requires going out of their way to avoid any instance of excessive force or unwarranted intimidation. That obligation is nothing new. The same guidance traces back to a passage from a letter written in 1791 by Alexander Hamilton to commanding officers of the Revenue Cutter Service (predecessor to the Coast Guard) that remains required reading for all Coast Guard law enforcement personnel:
“They will always keep in mind that their countrymen are freemen, and, as such, are impatient of everything that bears the least mark of a domineering spirit. They will, therefore, refrain, with the most guarded circumspection, from whatever has the semblance of haughtiness, rudeness, or insult. If obstacles occur, they will remember that they are under the particular protection of the laws and that they can meet with nothing disagreeable in the execution of their duty which these will not severely reprehend. This reflection, and a regard to the good of the service, will prevent, at all times a spirit of irritation or resentment. They will endeavor to overcome difficulties, if any are experienced, by a cool and temperate perseverance in their duty–by address and moderation, rather than by vehemence or violence.”
However simple that passage might appear, it may at times prove difficult in practice. Law enforcement and combat require very different mindsets and training approaches, even if some of the missions and capabilities overlap. The potential conflict between developing a resilient “combat ready” mentality that facilitates effective action under fire and ingraining restraint and humanitarian sensitivity was highlighted in the “Kill Company” case study, and explored in Lt. Col David Grossman’s book On Combat. “Cool and temperate perseverance” is appropriate in the course of normal operations, but reacting to a situation that suddenly changes from law enforcement use of force to rules of engagement (such as happened here and here), or homeland defense such as interdicting an inbound terrorist attack, requires the ability to instantly shift mental gears. Because of the diversity of Coast Guard missions and unpredictability of the threat environment, Coast Guardsmen must be ready to instantly transition from one extreme to the other.
The challenge remains to further refine the Coast Guard’s strategic narrative in what promises to be a tumultuous future. The Coast Guard must remain an outstretched hand that saves and a clenched fist that defends; a conscientious maritime constable and a combat-ready naval force. In looking for an effective narrative to emulate, it would be difficult to find one better than the 2003 “All Hands” that General Mattis sent his Marines on the eve of Operation Iraqi Freedom. His succinct, three-paragraph message concluded with “Demonstrate to the world there is ‘no better friend, no worse enemy’ than a U.S. Marine.” Guided by a similar maxim, the Coast Guard will ensure that the public it protects continues to feel reassured, not threatened by its presence, while those who seek to perpetrate violence or criminality at sea can count on a formidable and ready “maritime guardian” standing by to oppose them.
Please join us at 5pm (EDT) for Episode 242: “Lost Opportunities: WWI and the Birth of the Modern World”:
A hundred years on, in 2014 what insights can we gain from the war that started 100 years ago in August of 2014? What are some of the lessons we need to remember in all four levers of national power; diplomatic, informational, military, and economic – in order to help steer our future course as a nation, and to better understand developing events?
Using his article in The National Interest, World War I: Five Ways Germany Could Have Won the First Battle of the Atlantic as a starting point for an hour long discussion, our guest will be James Holmes, PhD, professor of strategy at the Naval War College and senior fellow at the University of Georgia School of Public and International Affairs.
Jim is former U.S. Navy surface warfare officer, graduating from Vanderbilt University (B.A., mathematics and German) and completed graduate work at Salve Regina University (M.A., international relations), Providence College (M.A., mathematics), and the Fletcher School of Law and Diplomacy at Tufts University (M.A.L.D. and Ph.D., international affairs).
His most recent books (with long-time coauthor Toshi Yoshihara) are Strategy in the Second Nuclear Age and Red Star over the Pacific.
Jim has published over 25 book chapters and 150 scholarly essays, along with hundreds of opinion columns, think-tank analyses, and other works. He blogs as the Naval Diplomat and is an occasional contributor to Foreign Policy, The National Interest, War on the Rocks, CNN, and the Naval Institute Proceedings.
Join us live at 5pm (EDT) if you can or pick the show up later by clicking here.
Homelessness is a difficult social issue that faces Americans head-on on a daily basis. Though it can be a complex issue made up of a myriad of different personal stories and unimaginable circumstances, a subset of those affected – homeless veterans – is a particularly painful reality – a reality that must change.
Homelessness is defined in Title 42 of U.S. Code as,
an individual who lacks a fixed, regular, and adequate nighttime residence and an individual who has a primary nighttime residence that is a supervised…shelter, an institution that provides temporary residence for individuals meant to be institutionalized, or a public or private place not designed for, or ordinarily used as, a regular sleeping place for human beings.
Government estimates put the number of homeless Americans as up to 3 million a year, yet many in our society continue to walk with their eyes averted. Members of the House Veterans Affairs Committee attempted to provide amplifying sentiment when they stated, “People don’t want to look at the homeless. But they will look at, or think about, or maybe support, dealing with homeless veterans.” Was their statement accurate, though? Do people pay more attention to homeless veterans, or was that merely wishful thinking or political side-stepping? Due to the inherently transient nature of those on the streets, not to mention the unwillingness of many to speak about their undesirable lot in life, it is incredibly difficult to take an accurate census of the homeless population. Informed estimates by government and non-profit organizations, though, put the total at nearly 300,000 homeless veterans in our country in a given year. In the 2013 Annual Homeless Assessment Report to Congress, the Department of Housing and Urban Development stated that no less than 60,000 veterans sleep without a roof over their heads on any given night.
Fifty percent of homeless veterans are younger than 50 years old – nearly double the percentage of total veterans between the ages of 18 and 50. A small number of veterans from World War Two and Korea remain on the streets, and the balance span our nation’s modern history of uniformed service: from the under-appreciated veterans of Vietnam to the continuously lauded veterans of Operations Iraqi and Enduring Freedom. Young and old, our nation’s most noble citizens – those who volunteered to serve their country – are stricken with hardships, hopelessness, and illnesses and live without even the most basic dignities that so many of us take for granted.
In 2009, President Barack Obama made a much-publicized announcement that kicked off the Department of Veterans Affairs’ initiative to end Veteran Homelessness by 2015: “Until we reach a day when not a single veteran sleeps on our nation’s streets, our work remains unfinished.” According to the National Coalition for Homeless Veterans, he was the first American President to demand an end to this critical, but often overlooked, social problem. Though many saw his pledge as overly ambitious, the VA’s initiative has received Congressional support and is progressing smartly. Whether the goal will be met remains to be seen.
Though we as citizens should work towards eradicating homelessness in our country, we as service members, veterans, and part of the extended military family must not tolerate our society’s continued habit of looking the other way and ignoring those who served it so honorably. Men and women who served our country – many of them putting their lives on the line – should not be without a roof, and a safe place to lay their heads.
There are a number of ways to get involved and to help our brothers and sisters in arms who are down on their luck. Community-based volunteer organizations and networks provide valuable services ranging from medical care to food and shelter. Donating money, food, clothing, and other life items to shelters is always appreciated, as is dedicating time to serve as a mentor, counselor, or friend to those in need. Organizations like The National Coalition for Homeless Veterans and Veterans Village of San Diego, as well as the Department of Veterans Affairs itself, all pose great opportunities to help make a difference in this fight to leave no man behind. Another important step is raising awareness.
Lieutenant Jackie Perez is a graduate of MIT and a Surface Warfare Officer (Nuclear), having served around the world and in combat operations in the Middle East. She recently transitioned to the Naval Reserve so that she could pursue her dreams of becoming a filmmaker. She now lives in California where she continues her service to our country and works as a civilian in Hollywood. She is socially conscious, volunteers at local organizations, and cares deeply about this issue. In her capacity as a young filmmaker, she is looking to highlight this issue in a short film and link the roles of our veterans to the greater society that we all enjoy.
The Music Bed is now running a contest called #projectfilmsupply, which will award generous film-industry support to three aspiring directors in order to bring their inspirational abstracts to life. LT Perez’ short-film project, My Fellow American, focuses on the issue of Veteran Homelessness and how it is approached by a society that often chooses to keep its head down instead of engaging our nation’s former warriors. The contest, which requires abstracts to be inspirational in nature, will be decided by the Public’s online votes (confirmed via email to ensure contest integrity). While we all might say that we want to get involved, LT Perez is doing it. This is an important project that should come to life and if it wins, the director, cast and crew will all be veterans, ensuring this story is told by those who share in the brotherhood of those they seek to support.
It is easy to avert your gaze or to come up with judgements as to why a person may be homeless, but it is much more difficult to recognize the scope of the problem and to take that first step towards making a difference. Please consider getting involved in your local community. Support the work of people like LT Perez with your vote, and remember that it is not in our code to leave our comrades in the field, cold, scared, and wondering if anyone will ever come to their aid.
“You never know till you try to reach them how accessible men are; but you must approach each man by the right door.”
– Henry Ward Beecher
I’m writing this in response (to the responses, I suppose) of a Proceedings article on Millennials written by CDR Darcie Cunningham, USCG, which lays out the ways in which Millennials are inherently unsuited for military service. The points she raised are echoed in the comments and responses to her article and frankly to the opinions of many of the senior leaders whom I’ve heard discuss the topic. The counter arguments, often penned by Millennial Officers, focus on discounting the arguments without actually looking at the problem from a positive aspect; addressing what the writer gets wrong rather than what the Millennials do right.
The Navy has been my life and home for over 23 years. As a proud Generation Xer, I too watched with dismay as the new generation of Millennials entered the service. Like many Gen X types, I more than once found myself fuming, and saying things along the lines of “Just do your job, what do you want a medal?” or something similar in the snarky language that defines our generation. Over the years, and in particular over the course of my command tour, I have come to realize that this new group of young men and women not only are worthy of respect, but in many ways offer the Navy an opportunity for improvement, provided we commit to both understanding this group, and adjusting our leadership styles to match their desires. First, we old folks need to get over ourselves and chuck the rose colored glasses when looking back at our junior officer days. Second, we need to look at the Millennial Officers for what unique qualities they bring to our organization. Finally, we must understand their equities so we can adjust how we deal with them in order to maximize their potential.
Now, for the purposes of this article and ease of language I will refer strictly to officers in the naval service, but these experiences also hold true for the Sailors with whom I’ve served, and I imagine are applicable across any military service.
The problems described in CDR Cunningham’s article will hardly seem generationally unique if we are honest with ourselves. Seeking to scam off the ship early is a time-honored and expected junior officer behavior. I’m sure I am not the only person to remember the concept of “liberty for the brave.” More fundamentally, given our increasing operational tempo, what value is there to keeping people at work once the work is done? Similarly, informality among first tour officers and a desire by these officers to receive positive feedback is hardly new. On the other hand, the sort of hard partying and behaviors preferred by previous generations are not found in today’s junior officers, through a combination of generational conservatism and increasingly harsh penalties for transgressions. How many of today’s commanders and captains could achieve their positions had camera phones existed in the 1980s and early 1990s in liberty ports around the globe? As for the comments about being delayed in promotion, there are many in my generation whose promotions were delayed due to the Tailhook scandal, including branches of the Navy who couldn’t have attended anyhow! The fact is that junior officers are, and always have been, works in progress. It is our job as leaders not to stifle them, but to learn what drives them, and what they need from us as leaders to develop to their full potential.
Fundamentally, the Millennial Officer offers significant opportunities that are not found in the current crop of generations in our maritime workplace, whether the Baby Boomers with their combination of workaholic tendencies and a firm belief that nobody works as hard as them, to my generation of cynics who feel like they are picking up the mess left behind from the Boomers. This new cohort has a combination of positivity, openness, and general fairness that make them very suited to leadership in a military environment. The average Millennial:
- Possesses a true belief in the greatness and opportunity offered by America and the future.
- Desires to be part of something meaningful, and greater than themselves and to work for a cause in the name of a greater good.
- Feels deeply committed to family and community.
- Believes themselves to be truly multicultural, able to work with people of any background, whether social, economic, or cultural. They accept and value the differences found in groups.
- Values working with a team more so than working alone.
- Is unafraid of technology or of change.
- Values results over effort
All of these identifiers of this generation are seemingly custom fit for working and eventually leading within an organization such as the Navy, which values commitment, teamwork, and diversity, and which embraces modern technology. So why wouldn’t we want them as our future leaders?
All existing generations believe that the follow on generations aren’t as good as them, and expect them to conform to the old way of doing business. As military leaders, however, we must hold ourselves to the concept of servant leadership; namely that the leader exists to serve the people under their command. In particular with the Naval Services, ensuring your people are properly trained, equipped, and motivated will ensure mission success. Doing this, however, requires today’s leaders to change our methods, since the levers that motivated our generation do not work on the current one. Failure to adjust means that we will be stuck looking to only locate people who fit into our narrow mold, vice becoming an organization that draws in the Millennial. So how do we accomplish this?
- Make a compelling case for why their service to the country matters. The Navy appears to understand this concept broadly given the recruiting campaign to be a “Global Force for Good,” but in practice this becomes harder to define. In an ideal world our leadership would only ask for deployments and sacrifice on items truly in the obvious national interest, however as long as there has been a Navy ships have been globally deployed to exert national influence and to provide our government with military options around the globe. Leaders have to find a way to adequately articulate why this matters. For instance, prior to my deployment in command to the 5th Fleet area of responsibility, I used the pre-deployment family training session to not talk solely about support services for the families while we were away, but also spent a good chunk of time describing the recent history and geography of the area, and did my best to explain the value of our continued presence in the area, and talked to them about how to read the news while we were gone. The response from this brief from the mothers, wives, and children of my Sailors was overwhelmingly positive, many remarking that they never understood why their men had to go away before that night. Linking their sacrifice to value is critical for motivating and retaining the Millennial Officer.
- Since families matter, the command must make a concerted effort to not merely pay lip service to caring for families, but actually expend reasonable command effort to live up to these expectations. This means doing everything possible to ensure parents are together for births, giving the crew time off from work to complete deployment preps months – not days – in advance, or frequently hosting family friendly events where the command team is present and engaged, to name a few examples. In particular in this era of cutbacks of services traditionally supported on base, a command team must commit to caring for families. Note that in today’s world this means engaging the parents as well, who remain an integral part of many young adult Millennials’ lives.
- A leader must be personable, and actually care for their people. Remember that this generation has been raised with their parents as their friends. Authority figures may not have been a part of their lives to this point. This means that as a leader you will need to balance being firm and setting expectations with being approachable. If you don’t show sincere concern for their personal lives and development, and make a connection with your people, the Millennial will not want to work for you. This means allowing more informality into the relationship than may have been expected 20 years ago when we were junior officers; as long as there are clear and defined standards being greeted below decks with “Hi Captain” vice “Good morning, sir/ma’am” will not jeopardize good order and discipline.
- Senior leadership should be ready for unrealistic expectations, and work with their people to turn these into a realistic plan. One of the defining traits of this generation is huge aspirations with little idea of how to get there. If dismissed and left unchecked this will drive down retention since our brightest and most ambitious officers will depart the service in pursuit of their grand goal. Frequent counseling and career reviews are critical to understanding where your people see themselves in five or ten years. Knowing their goals and understanding their personal lives as described earlier will allow leaders the opportunity to steer the individuals into a path to success. In my experience, this needs to be done whether the officer decides to stay in or leave the Navy. Full support of a departing officer’s goals will help convince the others that you truly have their best interests at heart.
Every generational shift is accompanied by the same resistance to change from older generations. Establishing a dialog that accentuates the positive aspects of generational divides vice using positional authority to reject these same issues is critical to the long term health of any organization, even one as traditionally resistant to change as the Navy. The Millennial generation represents the future of this nation, and brings dramatically different values to any organization. Embracing these values, and working with vice against this generation, will improve our readiness for the coming, challenging years.
In the August issue of Proceedings, Commander Darcie Cunningham, USCG complains about the personality traits brought to the naval service by millennials and gives advice on how to better assimilate them into the ranks [For other responses to the article see here and here]. I find the article incredibly condescending and patronizing with a hint of fear of impending irrelevance in a world that the Commander does not want to see change. Unfortunately, we do not have the luxury of remaining stagnant. The world is continuously changing. Our great nation is continuously changing. Our long tradition of citizen soldiers demands that we change with it.
I currently serve on a multi-generational crew with a hearty presence from generation X (those born between the early 1960s to 1980). They have stood a solid watch and I firmly respect how their service strengthened American seapower, but they are less dynamic than the current generation. They cling to inefficient means of communication and are more concerned with “work ethic” than the quality of product produced. This generation has me questioning how they can adapt in today’s rapidly changing world.
Here are some of their behaviors I have noticed:
• While the younger generation is more concerned with quality product, the older generation views a correlation with performance and hours worked. Given the same quality of results, they see laziness and a lack of dedication instead of efficiency.
• Along the same lines as correlating product with hours worked, they also would much rather see a more experienced individual be promoted over one vastly more skilled and qualified. They view accelerated advancement as an affront to their culture of advancement through keeping their head down and staying out of trouble. To them it is much better to be cautious and safe than tenacious and bold.
• They do not understand the need for the younger generation to know the basis behind requirements. The younger generations sees power through knowledge and asks why in hopes of finding a way to improve the status quo. The older generation is more apt to simply accept the way things have always been and can devolve to a frustrated “because I said so,” when asked for an explanation from subordinates.
Whether the older generation likes it or not, millennials are currently leaders within our organization. We are serving with discipline and dedication equal to those who have come before us, but we are doing it our own way. We will continue to preserve the liberties this country enjoys. So how does the structured military culture adapt to our new generation?
First, we must educate them on the benefits of promoting based on merit and not time in grade. The current antiquated system lets more competent individuals await their turn while they watch the less skilled continued to advance once it is their time to promote. If this merit-based promotion idea does not sit well with some members of the older generation, perhaps it is a subtle concern that they needed a time-based system to make it as far as they did. Job satisfaction should be the motivator for retention, not scare tactics of a poor economy and poor unemployment rate.
They need to be “course-corrected” that a desire to understand the basis for requirements and wanting to improve how we do things are NOT insubordination or disrespect. If this does not happen, our best will continue to be driven out and the military will remain a carbon copy of what it looks like now. Once we stop adapting we will most surely become irrelevant. The only way we can improve is if we ask if there is a better way and have an open and honest discussion about it. Progress has always been seen as a threat to the present. It takes courage to move forward as an organization.
I am very appreciative the older generation of senior leaders made sure the United States continues to rule the seas. They did an amazing job and they all deserve our thanks and respect. Their way of doing business worked, but previous performance does not guarantee future success. There are sure to be aspects of the current way of doing business and we should figure out what those are, but blindly maintaining the status quo is a sure way to fail.
How does policy shape, limit, or empower the effectiveness of command at the unit level? Which policies are a net positive, and which ones are counter productive? Are there things we can do to better balance larger Navy goals with the requirement to give leaders the room they need to be effective leaders?
In times of austere budgets, can you both reduce end-strength while at the same time retain your best personnel? Are we a learning institution that can adjust policy that answers the bell from DC in shaping tomorrow’s Fleet, yet does not break trust with Shipmates?
To discuss this and more we will have as our returning guest, Vice Admiral Bill Moran, USN. Chief of Naval Personnel. A P-3 pilot by trade, he held commanded at the squadron, wing and group levels. As Chief of Naval Personnel, he oversees the recruiting, personnel management, training, and development of Navy personnel. Since taking over a year ago he has focused on improving communication between Navy leadership and Sailors in the Fleet.
Join us live if you can or pick the show up later by clicking here.
U.S. Navy photo by MC3 Margaret Keith
This post is the first in a series being cross-posted from CIMSEC.
The United States Navy’s surface fleet finds itself in dynamic times. The standard length for deployments continues to rise, numerous hulls are on the chopping block, maintenance is battling to keep up with a harried operational tempo, and as ever, its leaders – Surface Warfare Officers, or SWO’s – are struggling to both improve, and in fact define, the community’s identity. Whether it is the uniforms we wear, our training pipelines, or our often-mocked culture, the community seems to lack a firm grasp on who we are, what we stand for, and how we do business. Over a series of three articles, I intend to first analyze a few counterparts – the Royal Navy, U.S. Naval Aviation, and U.S. Navy surface nuclear officers – and then explore some proposals meant to solidify the officers who take the world’s most powerful ships to sea.
After working alongside the Royal Navy, most American surface warriors walk away immensely impressed by the impeccable professionalism of their British counterparts. When SWO’s talk about improving their community, the Royal Navy’s practices inevitably come up. “We should do it like the Brits,” is a common theme. Few truly appreciate what that statement means, though. The Surface Warriors of the U.S. and Royal Navies are different: in size, mission sets, tempos, training, and priorities. There is not always a one-for-one correlation between the two. Before analyzing proposals or judging the merits of each side, let us simply gather some information by comparing the lifestyles of Sub Lieutenant Snodgrass, RN, and Ensign Timmy, USN.
The first area of comparison is training and path to qualification. All Royal Navy officer cadets spend between six and eleven months at Britannia Royal Naval College (BRNC), where students receive military indoctrination and learn the ins and outs of the naval profession through a standardized curriculum. Upon graduation from BRNC, the young surface officer proceeds on to a training track for Warfare Officers or Engineers. The prospective engineers endure a rigorous 20-month pipeline of practical and theoretical training.
Our Sub Lieutenant Snodgrass is a Warfare Officer, which is the career track most comparable to an American SWO’s. He and his comrades train for an additional 18-months. First, they attend three months of advanced seamanship theory training, followed by an intense year of practical bridge watch standing under instruction. If they are successful to this point, they stand for a week of individual bridge simulator assessments. Students must achieve passing marks on these assessments to proceed on to a final three months of advanced seamanship and navigation training. Upon graduation, they report aboard their first ship as an Officer-of-the-Watch (OOW) with a well-earned Navigational Watch Certificate. Within a month or so, SLt Snodgrass has earned his Commanding Officer’s Platform Endorsement – akin to a SWO’s Officer-of-the-Deck Underway Letter – and is entrusted with operating the ship unsupervised. While some Warfare Officers attend a 4-month long course and become navigators after gaining at least 4 years experience as an OOW, the next major pipeline for now-LT Snodgrass is the Principal Warfare Officer (PWO) Course and occurs at the nine-year point. Thirteen months long, the PWO Course trains Royal Navy surface officers to be the Commanding Officer’s advisor on either “Above Water” or “Under Water” Warfare, and can see up to 40 percent attrition.
The U.S. Navy SWO training pipeline has seen several iterations over the past 12 years. Before 2003, newly commissioned Surface Warfare Officer Trainees attended the six month-long Division Officer’s Course. SWOSDOC, as the course was called, taught the basics of ship handling, navigation, shipboard maintenance, damage control, leadership, and divisional administration. The objective of the course was to give all ensigns the tools necessary to immediately contribute to their wardrooms and a foundation from which to qualify aboard their ship. This course was disbanded in 2003 and for approximately nine years, new officers reported directly to their ships, took over their divisions, completed computer-based modules, and received on-the-job training as they progressed through their qualifications. The current training model sees new officers attending an 8-week Basic Division Officer Course (BDOC) in their Fleet Concentration Area, where they delve into many of the topics found in the old SWOSDOC program.
Upon completion of BDOC, ensigns report to their ships and are assigned a division of anywhere between 10 and 30 Sailors to lead and the associated responsibility of the maintenance of their division’s systems. Concurrent with their division officer duties, they embark on a journey to earn their Surface Warfare Officer designation and pin. This journey, nominally 18-months long, entails qualifying in a series of watch stations – namely, Officer-of-the-Deck In-Port, Small Boat Officer, Combat Information Center Watch Officer, Helm and Aft-Steering Safety Officer, and ultimately, Officer-of-the-Deck Underway – through the completion of Professional Qualification Standards (PQS) books and various oral boards. The milestone pre-requisite to the SWO Pin is the Officer-of-the-Deck Underway letter – similar to the Royal Navy’s Platform Endorsement – and usually comes after about a year aboard the ship and ultimately represents the Captain’s trust in the officer to safely and professionally operate the ship in their stead.
Typically, our Ensign Timmy will accumulate another six months of experience leading his bridge watch team, his division, and learning the catch-all nature of his chosen trade before sitting for his “SWO Board.” The SWO Board is a memorable event and involves the candidate sitting across from what, at the time, seems like a firing squad made up all of the department heads, the executive officer, and the Captain. While there is no formal, written or otherwise, fleet standard (outside of the pre-requisite watch stations) and no tangible result (aside from the pin), the SWO qualification represents a junior officer’s journeyman-level grasp of the surface, naval, and joint profession. Topics covered range far-and-wide: from logistics matters to amphibious landings and missile engagements, to personnel records, geography, ship and aircraft capabilities, emergency procedures, and naval justice fundamentals to meteorology. Now, with a pin and new officer designator, Lieutenant Junior Grade Timmy completes his first tour and attends approximately 1-2 months of job specific training before reporting to his next ship for a two year tour as Navigator, Auxiliaries officer, Main Propulsion Assistant, Fire Control Officer, Training Officer, Anti-Submarine Warfare Officer, or Force Protection Officer.
At the 8-year point, prospective SWO Department Heads attend up to nine weeks of intensive training in combat systems fundamentals, followed by 6-months in the Department Head Course, which includes three months dedicated to maritime warfare, and three months dedicated to administration, maintenance, damage control, and topics unique to the officer’s future billet.
The next point of comparison is more overt and was touched on briefly above. In the Royal Navy, recruits select and compete for a specialization before attending the Royal Navy College. They attend training either for Warfare Officers, Marine Engineers, Weapon Engineers, or Air Engineers. Warfare Officers are first responsible for bridge watch standing and safe navigation, and later in their careers for the tactical employment of the ship’s combat systems. Their engineers are responsible for leading the ship’s technicians and the upkeep of their respective kit – or in U.S. Navy terms, the preventative and corrective maintenance of their assigned shipboard systems. SLt Snodgrass, our Royal Navy Warfare Officer, will start his career with three tours as a bridge watch keeper. Later on, he serves two tours as a Principal Warfare Officer. His engineer counterparts – either marine or weapon – leave their training and serve a tour as a shipboard Deputy Head of Department, where they ultimately sit a professional board qualifying them as capable of leading a department. After engineering focused “shore drafts,” those who qualify return to sea as Heads of Department.
In the U.S. Navy, Surface Warfare Officers do not formally specialize in their billets. The community prides itself in producing Jacks-of-all-Trades. Ensign Timmy starts his career as a SWO by serving two division officer tours. He has little to no say in what his first billet will be – he could just as easily serve as the Electrical Officer as he could the Gunnery or Communications Officer. When proceeding to his next tour, his desires and performance are taken into account along with the ever-present needs of the Navy. En route to his second ship, LTJG Timmy receives his first formalized billet training. His second division officer tour may or may not fall under the same department as his first. After four years ashore, now-LT Timmy serves two 18-month Department Head tours. While his desires are given heavy weight, his assignment will not necessarily be to a department in which he previously served. The career experiences, training, and development of SWO’s is designed to ensure that they are notionally plug-and-play – able to serve in any capacity at a moment’s notice. The U.S. Navy does not have a direct comparison to the Royal Navy’s Marine and Weapons Engineers, though in our system, they would most closely be seen as a mix of our Limited Duty Officers and Department Heads.
A final point of comparison is the Royal Navy’s focus on watch-standing over billets in their Warfare Officer community. On a typical Type-23 Frigate, their Warfare Officers will fill the roles of the four Officers-of-the-Watch, Navigator, PWO Underwater, PWO Abovewater, Operations Officer, Executive Officer, and Captain. Other billets, including Weapon Engineer Officer, Marine Engineer Officer, and their deputies, are filled by specialized engineering officers.
The primary duty of SLt Snodgrass, as an assigned Officer-of-the-Watch and later a Principal Warfare Officer, is watch keeping. Officers-of-the-Watch are also assigned secondary duties like Classified Books Officer, Intelligence Officer, and XO’s Assistant. They are also responsible for the pastoral care of a group of Sailors. While leadership and special duties are a reality for the Warfare Officer, it is a fact of life that they come second to their job as professional watch standers. This fact was driven home to me by one Royal Naval Officer who said, “an OOW is a prime target for secondary duties… then we encounter an incident, and a casual factor is found to be that the OOW was distracted from their core task of watch-keeping, and an admiral directs a high-pressure blast getting rid of many of them (secondary duties).” Junior PWO serve as their Captain’s advisors on warfare and as the lead watch-stander in their Operations Room. When not standing watch and serving as a warfare advisor, they serve as shipboard staff, execute event planning, and serve in what the U.S. Navy might consider a special projects officer capacity, in addition to the pastoral care of the junior officers in their wardroom.
Surface Warfare Officers are detailed, or assigned, to a specific shipboard billet. This billet is not only on their orders, but also serves as their very identity aboard the ship. They are the Gunnery Officer – GUNNO – or the Chief Engineer – CHENG. As a division officer, Ensign Timmy spends his day seeing to his division’s Sailors, equipment, and operations, while also standing roughly ten hours of watch per day, whether that be on the bridge, in Combat, or in the engineering plant. Later on, Lieutenant Timmy leads a department of approximately three divisions. While serving as a Department Head, he qualifies and stands watch as Tactical Action Officer, leading the watch team tasked with employing the ship’s sensors and weapons and serving as the senior watch stander aboard the ship. Watches are not collateral for SWO’s, yet their professional bias is most certainly towards their billet and their people.
One key difference between the two navies that creates this disparity in bias is their respective approaches to duties covered by officers – specialists or not – vice enlisted Sailors. In the Royal Navy, most of the day-to-day upkeep of a division’s personnel and spaces is delegated to a senior petty officer. The Royal Navy also uses officers in many watch stations, like Quartermaster-of-the-Watch (duties considered a core competency of an RN OOW), Air Intercept Controller (Fighter Director in the RN), and Anti-Air Warfare Coordinator, that the U.S. Navy either mans with senior petty officers and chiefs, or splits between enlisted and commissioned watch standers. As a Royal Navy PWO broke it down for me, “tactical advice on Anti-Submarine Warfare (ASW) is my job as PWO(U), planning ASW matters is my chief’s job, looking after the ASW ratings is my petty officer’s job with direction from the two levels above, and maintenance of the ASW kit is the Deputy Weapon Engineering Officer’s job.” In the U.S. Navy, while surface Sailors are certainly empowered through delegation, a division officer or department head would have their hands in all of those levels in the execution of their assigned billet, while also concurrently standing watch throughout a given day.
Undoubtedly, each country could take something positive away from the other for their own betterment. Our unique cultures and operational commitments, as well as our relative sizes, certainly drive our respective methods. Now that we have a better understanding of how the Royal Navy does business, we can draw rough comparisons to the American Surface Warfare Officer community and start to imagine elements we might adopt as we endeavor for self-improvement. Before exploring specific proposals, though, my next piece in this series will again seek to inform by comparing the professional standards, training mindset and approach to attrition of the SWO community with that of both Naval Aviation and nuclear trained officers.
Jon Paris joins us to discuss his article, The Virtue of Being a Generalist, Part 1: A Day in the Life of Sub Lieutenant Snodgrass. We compare the Royal Navy and US Navy processes of creating officers for their surface fleet, the nature of being a maritime “professional,” improvements for the American model, and generally gab on for about 36 minutes.
Leadership is hard. This pretty much sums up the screed by Commander Darcie Cunningham, USCG, entitled “Now Hear This – Millennials Bring a New Mentality: Does It Fit?” in the August issue of the U.S. Naval Institute’s Proceedings Magazine. In her 700 words, Commander Cunningham finds fault with her subordinates’ work ethic and aspirations, deems them selfish and finally questions the ability of an entire generation. She advocates the time-honored virtues of patience, maturity, and experience, “course-correct[ion]”, and “accolades” to feed these Millienials “encouraging reinforcement and the feedback for which they hunger.” Her solution is to defeat lack of military discipline with more military discipline. This course of action is so obvious and unremarkable, even the freshest of lieutenants in the Marine Corps manages to grasp and implement it. Finally, she asks the right question, but fails to answer it: “So how does our structured military culture adapt to this new generation?”
Commander Cunningham has been taken to task by plenty of others in the blogosphere, including two notable rejoinders. Commander Salamander’s snarky response points out Cunningham is simply recycling the same “Old Breed” garbage that every generation trots out when faced with younger charges who think differently and have dissimilar, diverse experiences. Salamander kills with a tried and true quote from Napoleon himself – “There are no bad regiments; there are only bad colonels” – which boils a unit’s failure down to the essence of its leadership. LT Scott Cheney-Peters, a fellow Truman National Security Project Defence Council Member to the authors of this piece, is less derisive than Salamander in his response on the USNI Blog, but effectively dismantles her grievances point by point. Cheney-Peters, however, is also a Millennial, so anything he says, is likely to be self-aggrandizing and untrustworthy, under Commander Cunningham’s criteria. Finally, Matt Hipple deconstructs her argument point by point in a compelling rejoinder on the Center for International Maritime Security (CIMSEC) site.
Rather than point-counterpoint Commander Cunningham’s piece to death (and because Hipple has beaten us to the punch), we have elected a different tack. We plan to ignore it wholesale because the premise of her article is so ridiculous. By writing this article, she casts more light on the shortcomings of her leaders and herself than the men and women she has been selected to lead. To complain about the nature of those being led will inevitably end in failure. The leader is not entitled to lead only those individuals with the set of characteristics (s)he is most comfortable with. In truth, it would be incredibly easy and convenient to lead a group stolen from the pages of Miller and Varley’s 300. Who doesn’t want a company of chiselled killers who are adaptive, obedient, tough, respectful, hardened, smart, competent, fit and posses the ideal mix of martial characteristics that define success on the battlefields of yore? However, we do not live in a graphic novel. Our citizens and those hoping to become citizens send us their sons and daughters, with whatever skills, talents, abilities, and shortcomings they possess- warts and all. It is up to us as leaders to shape them, to mold their character and help them better themselves, to hold them accountable for their execution and conduct when they fall short. To do this, a leader must inspire, a leader must be tough, and most importantly a leader must have the agility to adapt to new subordinates in order to capitalize on the talents they bring to the fight. The task of the leader is to lead, not to bemoan the alleged shortcomings of the led. When we incessantly complain about our subordinates, we break down trust, we break down harmony, and we fail not only ourselves, but also those we are charged to lead.
In short, we hope Commander Cunnigham’s essay dies a quick death on the internet and does not make it to websites where Millennials might read it. To be questioned as a generation who has fought on many battlefields- be they on land or sea- might be construed a tad insulting to the critical thinking Millenial. Fortunately, most military leaders these authors know are sanguine and adaptable to the challenge of leading a generation different from their own.
Back in 2009, in his Proceedings article The Navy Can Handle the Truth: Creative Friction Without Conflict, regular USNI contributor Claude Berube provided a great observation about how important the give and take of debate is in addressing the challenges we face, and the great opportunity we have with the internet to broaden the reach and scope of those involved.
In the current environment, due to largely to changing missions, budgetary constraints, and varying priorities, the Navy continues to shrink in terms of both ships and personnel, decreasing the already minimal familiarity of the general American public with its Sea Services. Bullets and shells may win the battles, but words and ideas define the war and mobilize or sway the requisite public opinion to win it. Therefore, it is important for the Navy to recognize that one of America’s greatest strengths—its freedom of speech—can be its own force multiplier. This freedom allows for creativity, the engine of culture, the economy, and the military; dictatorial powers largely experience the relative creative stagnation regnant in a closed society.
Earlier this week over at my homeblog, in a discussion about another Proceedings article by CDR Darcie Cunningham, USCG; Millenials Bring a New Mentality: Does it Fit?, I brought in a White Paper that found its way to me, Training Millennials: Improving Quality in an Environment of Austerity, by LCDR Gordon “Judy” Faulkner, USN, at that time the VFA-106 Training Officer. Yesterday Judy sent me an updated version of the White Paper which I’ve embedded below.
Not taken aback by the boisterous romper-room that exists over at my homeblog, as I asked, Judy reached out to me – and the results are exactly what Claude was outlining.
I liked his email so much, with only minor changes, I asked his permission to publish it as a guest post. I originally was going to post his response over at CDRSalamander, but I wanted instead to bring it over here, as Judy brings up exceptionally important challenges that need to get a broader exposure.
Though I remain in disagreement with some of his observations about Millenials and think that discussion is a distraction, the other part – and I would argue the most important part of the White Paper – is what I would recommend the greatest focus by the reader.
Read the updated paper at the link above and draw your own conclusions, but the rest of the post I would like to turn over to Judy. The quotes are from my commentary on his White Paper, but otherwise the rest is his response. Over to you Judy.
Perhaps this piece would have been better as two separate articles, each addressing what I perceive as two very different topics. 1) Chronic under-resourcing coupled with mission creep, resulting in an inadequate training pipeline. 2) How to recognize, address and lead in light of generational friction, which you seem to agree is real and exists between most generations. Alas, the version you posted is the one that most people have read.
My use of the term “Millenials” in the title belied the real point of the paper. Alternatively I could have called it “How under-resourcing is threatening to destroy the Navy by forcing us to push through sub-par officers in an effort to meet requirements.” Even my long-winded literary namesake would assault this as verbose.
“He is not happy with the condition of the swimming hole he is playing in and has a rough idea that the issues are upstream … but besides a sniff and a passing glance, he has not started asking – or at least feels he has the top-cover to even bring up – the harder questions of “why” these personality types are floating down to his part of the river.”
Let’s put one thing to bed – during my time at VFA-106, AIRLANT fully supported every Field Naval Aviator Evaluation Board (FNAEB) that VFA-106 submitted; there were several. I was VERY happy with the swimming hole I was playing in (VFA-106) and those Commanding Officers who went to the mat to support me. In fact, it was my most rewarding tour thus far. Top cover existed in spades – to the point where VFA-106 failed to meet production metrics in part due to historically high attrition.
I have thought extensively about, ” “why” these personality types are floating down to his part of the river.”
It has a lot to do with the “fiscal austerity” in my title (sorry again for the drudgery there). Chronic under-resourcing creates a training dilemma.
How do we access, indoctrinate, train, and retain the best officers while culling those not suited to military service? Even more importantly, how do we do that in an environment where the best are leaving (or are not signing up in the first place), and we are forced in some cases to retain the worst to meet requirements? You point that out yourself here:
The problem is not with the Millenials – it is with senior leadership’s inability to select, cull, and lead junior personnel. Do that, and any “problem” people simply won’t show up.
That is the rub. Setting standards from officer accession, entry in to aviation pipeline, and then each milestone along the way.
Agreed. In fact, that is why six of seven proposed solutions have nothing to do with changing Millenials. Leadership is the solution, and as I state in my paper we need to tailor leadership to those we lead while enforcing or improving upon existing standards. That begins with understanding those we lead.
If I sound a bit like a curmudgeon, perhaps it is because 23 pages seemed long enough. Another paper written today might be about all of the positive aspects of Millenials that we should be tapping into and harnessing as leaders.
That being said, as you point out in your conclusion, generational friction is real. Understanding that friction and your audience are critical to effective communication, which is fundamental to sound leadership. Dr. Jean Twenge is doing a sound and scientifically based job of explaining current generational friction. In my opinion, she offers excellent insight for officers attempting to improve their communication skills. She is not selling snake oil out of the back of a wagon. She is attempting to quantify and explain generational friction in an effort to foster understanding. This is not at all about blaming Millenials; it is about understanding them. To quote my paper: “Developing Millennial officers requires a concerted leadership approach. Officers cannot lead in the ways that they believed worked for their generation. They must study, adapt and lead in the way that their Sailors require them to. Leaders must adjust their approach to their Sailors, not the other way around.”
There is also the problem of second guessing of who can or cannot meet standards. The multiple chances and training jackets measured in inches of thickness and pounds of weight … the pushing to the right and the next command people who should be invited to find another way to serve their country earlier on – wasting their time and the Navy’s money. That story is not new. May be worse – but not new.
Bingo. I could not agree with you more. Here’s the three million-dollar question – when we have fewer candidates who meet the standard than we have required billets, what gives, the requirement or the standard? This is where the rubber meets the road in today’s Navy. The most recent Aviation Department Head Screen Board is yet another example of this dilemma, albeit rooted in some different issues.
The Sailors of VFA-106 expend tremendous energy to train every officer who arrives at our door. In some cases, those officers should not have arrived in the first place. That does not mean they do not deserve our full effort. Some of the best leadership I have ever seen came from the Lieutenants whom VFA-106 assigned as mentors to our most difficult officers. We did not attrite those problem children them without first trying to lead and develop them.
There is a balance between healthy attrition and production. The former fosters competition and appreciation for the privilege of serving in the Navy. The latter ensures that we meet requirements in a way that is fiscally responsible to the US taxpayer. One of the most difficult decisions as a Training Officer or Commanding Officer is when to remove a student from training. In some cases it is easy; in most cases it is a gut wrenching progression of doing everything possible to train and lead (we all want to believe that we can get through to anyone) and finally admitting that some people are not suited for Aviation or for the Navy. The point where that decision occurs will vary based on leadership style and experience. In all cases, it is critically important that the Fleet provides unfiltered feedback on their nuggets and that the Fleet Replacement Squadrons provide the same to the Training Command. That flow of information should continue all the way to assessment. The bottom line is that ownership at every level ultimately ensures that we do not matriculate sub-standard officers to the fleet. Each command should see itself as a brand and every officer that passes their doors as a ambassador of that brand. Ultimately, a certain amount of undermanning is preferable to having sub-standard officer, aviator, SWO or Submariner in a Wardroom.
If you are not given the tools to force shape those that float down stream to you, then your bosses are the problem.
Boom goes the dynamite. In this case, the tools you speak of are resources matched to requirements. And in my opinion, the bosses are the elected ones, not the ones in uniform; however, it is our responsibility as officers to dutifully advise our elected officials when we can no longer meet stated goals given current fiscal constraints; however, as an O-4 at the Fleet Replacement Squadron those conversations are “a little out of my element.”
In summary, the entire cadre of junior officer instructors at VFA-106 is comprised of Millenials. They are some of the best officers with whom I have had the opportunity to serve. They are harder working, smarter and in many cases more dedicated then my contemporaries. Given adequate resourcing those same instructors of VFA-106 will set to meeting fleet requirements, providing the Navy with high quality Officers and aviators. And given adequate resourcing, we might just improve their morale and retention at the same time.
That, my friends, is how it is done.
As a final note – if you wonder if Aristotle, Chesterton, Socrates or other of history’s great thinkers ever yelled at the kids to get off their lawn, I recommend
- Midrats 21 Sept 14 – Episode 246: “When the short snappy war goes long, with Chris Dougherty”
- Back to Basics: Restoring the United States Merchant Marine
- On Midrats 14 Sep 14: Episode 245: “The Carrier as Capital Ship” with RADM Thomas Moore, USN, PEO CVN
- Five Enduring Lessons from Arabian Gulf Patrol Craft Operations
- Solution to the Russian Mistral’s Conundrum: NATO Flagships