Strategic Studies InstituteSSI U.S. Army War College

DMETCMSIN

FOTE-ARMED FORCE

Senato Sam Nunn"''i'r ,, i

,,,,,,~~~ Itsi=l~i•! ,

S LCT'A~~proveA a put Xmas93 E

U.S. ARMY WAR COLLEGE

Fourth AnnualConference on Strategy

February 1993

Carlisle Barracks. Pennsylvania

DISLAIMER NOTICE

THIS DOCUMENT IS BEST

QUALITY AVAILABLE. THE COPY9

FURNISHED TO DTIC CONTAINED

A SIGNIFICANT NUMBER OF

PAGES WHICH DO NOT

REPRODUCE LEGIBLY.

N NCLAL` 31 '";D

' tS ) q r Z . i • . * i ' . ,," I. I .. • (* I

2b. OE s CýASS,.ýýCA T,ý ,-Approvea ror =UDllc release;AIstr:zut-cn i2.mtea

ACN 9_101V

Strategic ,

Studies Institute AWCI

U.S. Army War Colleae, rliaie EksCarlisie, PA . 0O_-_ OSC

Domestic Missions -:cr -.ne Armec F? rces

Nunn, Jam

Final : ---

.__-____ _.______."____"_............... " r " ' • " r--T;.'e efforts;domestic neeas; roles ana ,-,ssions or the ArmeaForces; Naticnal Defense A!tncrizaticn Act. FYvo

-~d~ z.*'*3 -. ' 3 '3" " U33 . z".~ tIn-99 Senator Sam Nunn, Chairman or tne Senate Armec Jervices Committee,

initiated legislation to ennance civilian and military cooperation inresolving critical domestic needs. The political context of this speecn isas important as its content. The cold war is over, domestic crises aremanifesting themselves, ana the Armed Fcoces, especially after the Gulf War,enjoy unprecedented prestige and unique capabilities and efficiencies. Theseefficiencies, Senator Nunn believes, can oe turned on comestic difficulties. ,As budgets are cut, the broad area of roles and missions also become thevehicle for scrubbing the budget and revalidating missions and force struc-tures. The revalidation process continues, and, in simple terms, the defensebudget will see dollars being taken out or new missions added. This paperdetails Senator Nunn's ideas for new missions.

S.-.-UnclassitiedMarianne P. Cowling (717f_245-4133 AWCX -

Cw--

DOMESTIC MISSIONS

FOR THE ARMED FORCES

Accesion For

NTIS CRA&IDTIC TABUnannounced

Justification

Senator Sam Nunn BDistribution I

Availability Codes

Dist Avail and I or

Special

February 1993 D TICSELFECTE -

t•Y o 5 1993

E93-09593

95I 3 !11 1I1 0111 4iii! 3IB111!11!111!II

93 504 134

The views expressed in this report are those of the authors and do notnecessarily reflect the official policy or position of the Department of theArmy, the Department of Defense, or the U.S. Government. This report isapproved for public release; distribution unlimited. Portions may be quotedor represented without permission, provided that a standard source creditline is included.

Comments pertaining to this publication are invited and may beforwarded to: Director, Strategic Studies Institute, U.S. Army War College,Carlisle Barracks, PA 17013-5050. Comments also may be conveyed bycalling the Conference Organizer, Dr. Gary L. Guertner, commercial (717)245-3108 or DSN 242-3108.

..... This paper was presented at the U.S. Army War College Fourth AnnualStrategy Conference held February 24-25, 1993, with the assistance of the

- Office of Net Assessment. The Strategic Studies Institute is pleased topublish the paper as part of its Conference Series.

ii

FOREWORD

During the summer of 1992, Senator Sam Nunn, Chairmanof the Senate Armed Services Committee, initiated legislationto enhance civilian and military cooperative efforts in meetingcritical domestic needs. In a speech before the Senate ArmedServices Committee, he called for a major reexamination of theroles and missions of the nation's Armed Forces to help solvethese problems.

The political context of Senator Nunn's speech is asimportant as its content. The cold war was over, domesticcrises were manifesting themselves, and the Armed Forces,especially after the Gulf War, enjoyed unprecedented prestigeand unique capabilities and efficiencies. These efficiencies,Senator Nunn believes, can be turned on domestic difficulties.

As budgets were cut, the broad area of roles and missionsalso became the vehicle for scrubbing the budget andrevalidating missions and force structures. The revalidationprocess continues and, in simple terms, the defense budgetwill see dollars being taken out or new missions added. Thispaper details Senator Nunn's ideas for new missions. It setsforth his speech, the relevant materials from reports of theSenate Armed Services Committee and the House-SenateConference Committee (Appendix A), and the final text of thelegislation as enacted in the National Defense AuthorizationAct for Fiscal Year 1993 (Appendix B).

The Strategic Studies Institute is pleased to publish thisdocument as part of the larger debate on roles and missionsfor the Armed Forces.

WILLIAM A. STOFFTMajor General, U.S. ArmyCommandant

iii

BIOGRAPHICAL SKE:CHOF THE AUTHOR

SAM NUNN, who was first elected to the United States Senatein 1972, has become one of the leading figures in Americangovernment and an internationally recognized expert ondefense and foreign policy issues. He is Chairman of theSenate Armed Services Committee and the Senate'sPermanent Subcommittee on Investigations. He also serveson the Intelligence Committee and on the Small BusinessCommittee. His recent legislative accomplishments include:co-authoring the 1988 law to expand nationwide drugeducation, treatment, and law enforcement programs;introduction of the National Service Bill to create a "civilianservice corps" by offering generous education benefits inexchange for one or two years of public or military service;passing sweeping reforms of the Pentagon bureaucracy toimprove management and efficiency and reduce waste; anddevelopment of new co-operative methods to reduce the riskof accidental nuclear war. Senator Nunn attended GeorgiaTech and Emory University, and Emory Law School, where hegraduated with honors. After active duty service in the U.S.Coast Guard, he served six years in the U.S. Coast GuardReserve. He first entered politics as a member of the GeorgiaState House of Representatives in 1968.

iv

DOMESTIC MISSIONSFOR THE ARMED FORCES

FORGING CIVIL-MILITARY COOPERATIONFOR COMMUNITY REGENERATION

Mr. President, the end of the cold war has created a numberof opportunities, as well as challenges, for our nation. Thecollapse of the Warsaw Pact and the Soviet Union give us achance to make significant reductions in the size of our militaryforces and our defense budget. Recent nuclear weaponsagreements have diffused a portion of the world's arsenal ofweapons of mass destruction. But tremors of instability andoutright regional conflict are continuing to shake many parts ofthe globe. These volatile situations, coupled with the changingnature of the world's balance of power, mean that we must stillmaintain a strong, and perhaps, even more flexible militaryforce.

Over the next few years, the nation will continue the debateover what size the base force should be, what roles andmissions it should undertake, and how it should be structured.There is considerable uncertainty at this time on just what kindof a military capability we will need in the future and what sizeforce will be adequate.

We are leaving a security era that demanded large numbersof U.S. combat forces stationed overseas or operating inforward locations at high states of combat readiness in orderto confront a large and quantitatively superior opponent. Thatera has ended. We are entering a security era that permits ashift in our overall strategy more toward smaller force levels,with fewer overseas deployments and lower operating tempos.The exact size and organization of this future base force is stilltaking shape. It will be a smaller force than we have today. Weall know that. No doubt it will be smaller. It will have to be justas professional-and even more flexible. The force will stillneed a basic amount of combat and operations training tosustain maximum proficiency and as well as readiness. But

there will be a much greater opportunity than in the past to usemilitary assets and training to assist civilian efforts in criticaldomestic needs.

Recent events in Los Angeles, with their terrible cost in lifeand property, should remind us all that our society facesnumerous domestic challenges that in many respects are asdaunting as any potential foreign threat to our national security.While the Soviet threat is gone, we are still battling at homedrugs, poverty, urban decay, lack of self esteem,unemployment, and racism. The military certainly cannot solveall of these problems and I don't stand here today proposingany magic so!ution to the numerous problems we have athome. But I am totally convinced that there is a proper andimportant role the Armed Forces can play in addressing manyof these pressing issues. I believe we can re-invigorate themilitary's spectrum of capabilities to address such needs asdeteriorating infrastructure, the lack of role models for tens ofthousands, indeed hundreds of thousands if not millions, ofyoung people, limited training and education opportunities forthe disadvantaged, and serious health and nutrition problemsfacing many of our citizens, particularly our children.

THE ARMY'S DOMESTIC ACTION PROGRAM

There is a solid precedent for civil-military cooperation inaddressing domestic problems. Army Regulation 28-19,developed under the leadership of Secretary Howard "Bo"Callaway in the Ford Administration and issued in 1975,authorized a "Domestic Action Program." The purpose of theprogram was to authorize "use of Department of the Armyhuman and physical resources to assist and support thecontinued improvement and development of society." Underthis program, local military commanders helped communitieswith activities such as fixing up recreation facilities andconducting summer programs for disadvantaged youngpeople. The program, however, was decentralized, and, ofcourse, in many respects needed to be decentralized. But ithad very little management emphasis from the Army'sleadership. In the 1980s, as the Army increased its focus on

2

military training, interest in the Domestic Action Program faded,and the regulation was rescinded in 1988.

ASSIST MEETING DOMESTIC NEEDSWITH INNOVATIVE MILITARY TRAINING

As we restructure our Armed Forces over the next decade,the attention of DoD's civilian and military leadership mustremain focused on training the Armed Forces for their primary

,A• mission which is the military mission. But that goal, in my view,is compatible with enhancing the military's ability to assist inmeeting domestic needs. Creative commanders have alwaysdevised numerous innovative activities for their units-beyondroutine training-to build morale and also to build unitcohesion. Community service projects present an excellentopportunity for them to do so while providing important servicesto our society. The milfitary involvement in counter-narcoticsactivities is a good example of a mission that enhances militaryskills, helps to address an important domestic problem, andimproves the morale of the people involved.

During markup of the National Defense Authorization Actfor Fiscal Year 1993, I intend to offer a proposal to authorizethe Armed Forces .o engage in appropriate community serviceprograms. I would like to outline the basic concept today, inorder to encourage comments and suggesti ns from mycolleagues and from the Department of Defense before thefinal details are developed during the markup. In other words,Mr. President, I'm not locked in concrete. I'm throwing out theseconcepts today. I know Senator Warner has been looking onbehalf of the minority at a number of concepts and I'm hopingthat by stimulating the thinking in this area we can refine thisproposal in the next two or three weeks.

PRINCIPLES AND OBJECTIVES OF A CIVIL-MILITARYC' ")PERATIVE ACTION PROGRAM

Mr. President, I want to stress at the outset that any such,,rograms must be governed by three essential principles:

1. Any such project must be undertaken in a manner thatis consistent with the military mission of the unit in question.

3

2. The project must fill a need that is not otherwise beingmet, and must not compete with the private sector or withservices provided by other government agencies.

3. The program cannot become a basis for justifyingadditional overall military expenditures or for retaining excessmilitary personnel. Projects should be .indertaken only withpersonnel, resources- and facilities that exist for legitimatemilitary purposes.

Building on the Army's experience with its Domestic ActionProgram, I would envision a new Civil-Military CooperativeAction Program with the following objectives:

"* First, enhancing individual and unit training andmorale through meaningful community involvement.

"* Second, encouraging cooperation between civilianand military sectors of our society.

"* Third, advancing equal opportunity in the nation andhelping to alleviate racial tension and conflict andstrife and misunderstandings in our nation.

"* Fourth, enriching the civilian economy by transfer oftechnological advances and manpower skills.

" Fifth, improving the ecological environment andeconomic and social conditions of the areas that arewithin the reach of our existing military base structure.

"* And, finally, increasing the opportunities fordisadvantaged citizens, particularly children, toreceive employment, training, education, as well asrecreation.

The program would be organized under the supervision ofthe Assistant Secretary of Defense for Force Management andPersonnel. I believe that we should give the militarydepartments and the Department of Defense broad discretionto manage the program in a manner consistent with theirmilitary missions, who would in turn grant flexibility to localcommanders in the implementation of the program. Every basewill be different--different missions, different talents, different

4

capabilities different geographic areas. There won't be one

model for thr- country.

Tc cisure that projects meet important community needs,and do not compete with the private sector and othergovernment organizations, local installations would establishAdvisory Councils on Civil-Military Cooperation. In thesegroups, officials from the military installations, representativesof appropriate local, state, and federal agencies, leaders ofcivic and social service organizations, and business and laborrepresentatives from the private sector would meet to provideadvice to local commanders in planning and executing civilianmilitary projects.

Mr. President, if we commit ourselves to it, this plan, as Iview it, can make a major contribution to community restorationand regeneration efforts across the country. The Americantaxpayers have invested in and have built a great stockpile ofinnovative ideas, knowledge, trained, talented people, andequipment in the military over the years. These resources, ifproperly matched to local needs and coordinated with civilianefforts, can make a useful contribution to addressing theproblems we face in blighted urban areas, in neglected ruralregions, in schools, and elsewhere.

OPPORTUNITIES FOR MILITARY ASSISTANCE

Depending on the capabilities and availability of specificunits, and the needs of local communities, the Armed Forcescan assist civilian authorities in addressing a significantnumber of domestic problems.

Role Models.

I would put at the top of the list role models. One of the keystrengths of the Armed Forces is developing role models.Hard-working, disciplined men and women who commandrespect and honor in their very presence can serve as a verypowerful force among our young people-especially wherefamily structures are weakened by poverty, drugs, and crime.We should enhance opportunities for good role models tointeract with our young people.

5

Take, for example, the case of Sergeant First Class LenardRobinson, stationed at Fort Bragg, North Carolina, who activelycorresponded with learning handicapped children at a schoolin California while he was overseas during Operation DESERTSTORM. Typically, learning handicapped children have greatdifficulty expressing themselves in writing. SergeantRobinson's vivid descriptions of his experiences overseas,combined with photos and videos that he sent, have inspiredmany children to read his letters. And many of the children,who never wrote more than a few words before they heard ofSergeant Robinson, now write long letters to him. We havethousands of Sergeant Robinsons in our military servicestoday.

The YESS program in Michigan is a collaborative effortbetween the private sector, non-profit organizations, and theMichigan National Guard to provide disadvantaged youngpeople with role models and specific educational skills. Youngpeople live on a military base for 5 days, receiving science andmath tutoring, as well as exposure to military hardware andoperations. This provides an exciting, stimulating environmentto not only enhance their educational skills, but also to providethem with role models that encourage these young people toset goals for their own lives. It enables them to look at otherswho have come from similar circumstances and say, "If theydid it, I can do it also."

Senator Levin brought this program to my attention. He'svery familiar with the program, and will be describing it in moredetail when he speaks on this subject. Why not expand thisprogram so that it can benefit young people throughout ournation?

The nation is familiar with our senior military leaders, manyof whom are black who served our nation so well duringOperation DESERT STORM, such as General Colin Powelland Lieutenant General Calvin Waller. Over 400,000 membersof the Armed Forces today who serve our nation well and ablywho are black, and over 90,000 who are Hispanic, whoseservice, in Operation DESERT STORM and elsewhere,represent a model for every citizen in our country. Theseinclude Marines such as Captain Ed Ray, a light infantry

6

company commander whose testimony before our committeeabout combat in Operation DESERT STORM demonstratedthe professionalism and competence of our junior officers. OrSpecialist Jonathan Alston of the Second Armored Divisionwhose heroism in DESERT STORM earned him the Silver Starand who is featured in the television docudrama "The Heros ofDESERT STORM." These individuals can serve, not just thosewho've been in DESERT STORM but thousands of others whohave achieved great professionalism, can serve as a rolemodel in community service programs throughout our country.

But there must be a structured program to enablecommunity organizations to benefit from the capabilities andqualities of military role models. Military leadership, at both theofficer and enlisted level, is an example of unique nationalresources. Why not use this resource as an example to tensof thousands of inner city and rural youth who, for example,may never have had a father in their own home?

Rehabilitation and Renewal of Community Facilities.

Mr. President, all across this country, schools, publichousing, and recreational facilities, as well as roads andbridges, need repair in areas where government funds andprivate sector involvement are simply not available. Active dutyand reserve units, particularly those with engineeringcapabilities, could participate in restoring part of ourinfrastiucture in this country. Military construction units mayneed to be beefed-up and perhaps redistributed to ensure thatcapabilities exist in all geographic areas to meet this importantneed.

Bill Guilfoil of the Atlanta Project at the Carter Center inGeorgia reported to me that at least 1500 public housing unitsare boarded-up and unoccupied in Atlanta because of theirstate of disrepair. Meanwhile, the city's homeless populationnumbers at least 12,000. I think this story would be repeatedin city after city after city across our land.

There are dozens of combat engineer units, located inGeorgia, that really need to do construction and maintenancetraining in order to keep up their proficiency because that's

7

what they do. That's what they have to do in any kind of conflict.I think it makes sense to put those domestic needs and ourmilitary engineering resources together. Army combatengineering units could be effectively used to repair dilapidatedpublic housing, repair aging schools, and refurbish oldrecreational facilities. They could also provide temporaryfacilities to meet pressing public needs. As noted in an article,I believe it was The Washington Post last week, the WIC(Women's Infants and Children) Program center that served

,JA the south central Los Angeles area was destroyed in the riots,leaving the area without the capability to ensure that childrenand pregnant mothers receive vital nutrition. The military hasthe capability to provide temporary buildings on a very shortnotice. Why not use this capability to deal with such anemergency?

Last year, in Operation PROVIDE COMFORT in Iraq,military maintenance and construction units built housing, laidcement roads, put in plumbing systems-and the list goes onand on-for the desperate Kurds. We have desperate peoplein America. Why not put those resources to work at home? Inmany areas, these units are located right next door to blightedareas.

National Guard Bureau for a National Guard YouthCorps.

The military should examine ways to refocus local reservecomponent training on local community support initiativeswhenever feasible and operationally justified. I will beproposing a pilot program to be implemented by the NationalGuard Bureau for a National Guard Youth Corps.

Last year in the Department of Defense Appropriations Actfor Fiscal Year 1992, Congress appropriated funds for theNational Guard Bureau to develop a program designed todemonstrate how disadvantaged youth can be aided througha program, based on a military model, of education, personaland skills development, and work in service to theircommunities. This initiative was sponsored by Senator Byrdand I compliment him on his proposal.

8

The National Guard Bureau has since completed its workon designing a pilot program. I think it's very promising. As itis currently envisioned, the Chief of the National Guard Bureauwould be authorized to enter into agreements with thegovernors of 10 states to operate a military-based trainingprogram to improve basic skills and employability of highschool dropouts. In this regard, I will be working with SenatorByrd, and with Senator Glenn, who chairs our ManpowerSubcommittee, to include a provision in our defense markupthis year authorizing such a pilot program which is really beingenthusiastically requested by the Guard Bureau.

The program would require a relatively modest investmentof the talent that is already available in National Guard units. Ialso have been informed that General Colin Powell, Chairmanof the Joint Chiefs of Staff, is interested in expanding the JuniorROTC training program, an effort, which I applaud, which couldbenefit from the types of assistance that I have outlined in theseremarks. An expansion of the Junior ROTC program,particularly in our inner cities, could be very beneficial. I lookforward to getting that proposal from General Powell andothers he is working with.

If these plans are implemented, they could do much to helpthe young people of our country. Why not put our militaryresources to work on this type endeavor?

Summer Programs.

Our young people need other kinds of help. I believe weshould investigate ways to refocus DoD summer hire programsto recruit disadvantaged students where feasible. In areaswhere the DoD operates schools, teachers and perhapsfacilities could be involved in summer school outreach todisadvantaged children. Why not put these resources to workin areas of greatest need?

Job Training and Education.

There is a dire need for job training and education-especially in the inner cities-to enable men and women tomeet the needs of the evolving workplace. While our

9

educational system and private industry must bear the primaryresponsibility for training and education, there may beopportunities in specific locations for civil-military cooperationin use of military training facilities to assist in meeting theseneeds. Why not look at our military resources as a resource forthis kind of training and education?

Medical Transport.

Our ability to transport people to medical facilities in an",A emergency can never be fast enough, particularly for trauma

victims. Every day, military medevac units must log certainhours of flight training. That's what they train for all year long,to be ready in a contingency. That's what they're in businessto do, to help evacuate people in a conflict situation. I submitthat they should be allowed to do so while helping our owncitizens at the same time. Currently, 97 percent of theaeromedical evacuation units are in the Air National Guard andAir Force Reserve. These units provide long distance medicalevacuation. In addition, one reserve and 17 active helicopterunits in the Army, and one Air Force reserve helicopter unit,provide short distance emergency medical evacuation underthe Military Assistance to Safety and Traffic Program alreadyavailable in a number of states. In Georgia, for example, the498th medical company at Fort Benning has provided criticalemergency medical support to assist communities throughoutsouthwest Georgia, particularly in rural areas. I believe thatthese units can be more centrally integrated and managed asthey train to provide even more assistance to our communities.

Communities that do not have access to current military orcivilian medical transportation services need these resources.Why not look at the inventory of our military resources,determine which areas can be matched up, determine wherethe private sector is not able to provide this kind of service, anduse the military in meeting these critical needs.

Public Health Outreach.

In a similar vein, there are many citizens in both urban andrural areas who lack the very basics of health and medical

10

services. There may be opportunities in specific locations touse DoD medical capabilities to assist civilian authorities inproviding public health outreach to these urban areas. TheCenter for Disease Control (CDC) in Atlanta estimates thatfewer than half of all American children are fully immunizedagainst diseases such as polio, diphtheria, tetanus, measles,and rubella. Infant vaccination and basic medical treatment areservices that the military provides routinely in humanitarianmissions abroad. Why not use these resources at home?

Nutrition.

There may be areas in which the military could even playa useful role by assisting civilian authorities in addressing theserious problem of hunger in America. The Food Research andAction Center-which recently honored our colleague SenatorLugar for his leadership on this issue-has estimated that 5million children under age 12--one in eight in America-sufferfrom hunger.

An old military saying is that "the Army travels on itsstomach." The military has extensive food storage,preparation, and distribution systems. Military unitsresponsible for these systems, including those in the NationalGuard and Reserve, could play an important role in thedistribution of surplus food. They could help providetransportation, storage, and preparation assistance to federal,state, and local agencies while they are preparing for theirbasic mission. Where civilian agencies need this assistance,and military units are capable of providing it, why not put theseresources to work?

AN OPPORTUNITY FOR POSITIVE CHANGE

Mr. President, the time to turn these ideas into action, Ithink, is this year--during this window of change and flexibility.As we reconfigure our military forces for our future defenserequirements, I believe that we can reduce some of the combatmissions that have been assigned to the National Guard andReserves. At the same time, because warning times will bemuch longer, we should realign more of the military's support

11

missions to the National Guard and the Reserves. Thesesupport units must be distributed in a regionally balanced wayto provide a more effective capability for each state, with theadded benefit of facilitating the opportunities for civil-militarycooperation. Pentagon officials should put greater emphasison coordinating military training with the potential benefits thatsuch training can have in improving our communities. Theyneed authority to do so and they need an expression from thecongressional branch of government to do so.

I am confident that this Civil-Military Cooperative ActionProgram can be structured in a manner consistent with ourmilitary needs, without competing with the private sector orother government agencies. It is imperative that we notundercut private enterprise. But we can all look at the cities ofour country today, we can look at the problems in Los Angelesand the problems in Atlanta and the problems in Chicago andthe problems in New York and Boston, and on and on, and wecan easily say, without any fear of being repudiated that theprivate sector cannot handle the job that needs to be done. Allwe have to do is look at the federal budget deficit and knowthat there is not going to be an instant solution with huge,billions and billions of dollars of new expenditures.

There are many opportunities for the military to getinvolved. I don't pretend the military can solve all theseproblems. They would have to be carefully tailored to eachindividual base, each individual unit's capability, and we'd haveto keep our focus on the military mission, first and foremost,but there are many opportunities for military assistance tocommunity needs that cannot be met with current privatesector or civilian public resources.

Mr. President, I watched the faces of the people who foughtin DESERT STORM. I watched the faces of those whoprovided relief to people who were dying on the desert whothey'd been fighting with a few minutes before, and I watchedthe young people, and the satisfaction they had in helpingpeople who were dying in need. I also talked to many peoplewho came back from helping the Kurds. I talked to peoplewho've come back from Bangladesh in helping there. Nothinggives military people more pride than carrying out a mission of

12

humanity, a mission of peace, a mission of mercy. This issomething they enjoy doing. It gives them tremendoussatisfaction and it's something they do well.

By using the capabilities we have in the military, we canassist civilian authorities in addressing the criticalfundamentals upon which a healthy society, a healthyeconomy, and a healthy military are built. I believe this is asensible investment we can make in our future, and a vital one.I look forward to working with my colleagues in receivingsuggestions, additions, warnings, caveats, and so forth to thisproposal. I look forward to working with the senior leadershipof the Defense Department-Secretary Cheney, GeneralPowell-I've already discussed this with General Sullivan ofthe Army. I have talked about it with several other individualsand I believe that working together we can develop a vibrantCivil-Military Cooperative Action Program to begin working onsome of these problems that afflict our nation.

13

APPENDIX A

Excerpt from Senate Report No. 352, 102d Congress, 2dSession, A Report to Accompany S. 3114, the NationalDefense Authorization Act for Fiscal Year 1993 (July 31, 1992):

Civil-Military Cooperative Action Program.

As detailed elsewhere in this report, the end of the cold warand the related defense build-down mean that the ArmedForces will have fewer overseas deployments and loweroperating tempos. In addition, the roles and missions of theNational Guard and Reserve Components will be redefined toplace greater emphasis on combat support and combat servicesupport. Although it is essential that our nation maintain strongand flexible military forces, the post-cold war environmentmeans that the Armed Forces will have a much greateropportunity than in the past to assist civilian efforts to addresscritical domestic problems.

The American people have made an enormous investmentin developing the skills, capabilities, and resources of theArmed Forces. These resources, if properly matched to localneeds and coordinated with civilian efforts, can make a usefulcontribution to addressing the serious domestic needs of theUnited States.

There is considerable precedent for such an effort. In 1969,for example, Secretary of Defense Melvin Laird established aDoD Domestic Action Program "to contribute to theimprovement of society, including its disadvantagedmembers." The Army, under the leadership of SecretaryHoward "Bo" Callaway, issued a detailed regulation in 1975authorizing "use of Department of the Army human andphysical resources to assist and support the continuedimprovement and development of society." Under the program,local military commanders helped communities with activitiessuch as fixing up recreation facilities and conducting summerprograms for disadvantaged young people. The program was

15

decentralized, and the regulatory guidance was rescinded in1988, but individual programs at local installations havecontinued to this day.

The other services have sponsored similar programs overthe years. The Navy, for example, established a PersonalExcellence Partnership Program in 1985 to help America'syouth become better educated, healthy, and responsiblecitizens. Navy volunteers have assisted thousands of youngpeople with mentoring, tutoring, coaching, health and sciencefairs, environmental projects, and other community serviceprojects. Six of these projects have been recognized under thePresident's "Daily Points of Light' program.

As the nation restructures our Armed Forces over the nextdecade, the attention of DoD civilian and military leadershipmust remain focused on training the Armed Forces for theirmilitary missions. That goal, however, is compatible withenhancing the military's ability to assist in meeting domesticneeds. Creative commanders have always devised innovativeactivities for their units, beyond routine training, to build moraleand unit cohesion. Community service projects present anexcellent opportunity to do so while providing importantservices to society.

Members of the Armed Forces have the training, education,and experience to serve as role models for the youth of ournation. The nation has significant domestic needs in areassuch as health care, nutrition, education, and infrastructure thatcannot be met by current and anticipated governmental andprivate sector programs. Civil-military cooperative efforts toaddress these problems can be undertaken in a manner thatis consistent with the military mission and does not competewith the private sector.

The committee recommends a provision that would providea statutory basis for domestic assistance--the Civil-MilitaryCooperative Action Program. The program would be govemedby three essential principles: (1) any project under the programmust be undertaken in a manner that is consistent with themilitary mission of the unit in question; (2) the project must filla need that is not otherwise being met, and should not compete

16

with the private sector or with services provided by othergovernment agencies; and (3) the program cannot become abasis for justifying additional overall defense expenditures orfor retaining excess military personnel. Projects should beundertaken only with personnel, resources, and facilities thatexist for legitimate military purposes.

The legislation would authorize the Secretary of Defenseto use the skills, capabilities, and resources of the ArmedForces to assist civilian efforts to meet the domestic needs ofthe United States. The proposal would require that thisassistance be provided "in accordance with other applicablelaw." This means that projects under the Civil-MilitaryCooperative Action Program would be subject to the samestatutes that otherwise govern activities of the Department ofDefense.

The Program would have the following objectives: (1)enhancing individual and unit training and morale throughmeaningful community involvement; (2) encouragingcooperation between civilian and military sectors of society inaddressing areas of domestic need; (3) advancing equalopportunity and improving relations among racial and ethnicgroups; (4) enriching the civilian economy through education,training, and transfer of technological advances; (5) improvingthe environment and economic and social conditions; and (6)providing opportunities for disadvantaged citizens. It is not thepurpose of the legislation, however, to assign to theDepartment of Defense the responsibility for accomplishingthose objectives. Therefore, while the Department of Defenseis authorized to use its resources to assist civilian officials, thelegislation would not assign to the Department of Defense theprimary federal responsibility for addressing these problems.

The legislation would authorize the Department of Defenseto use its resources for Civil-Military Cooperative Actionprojects. The committee intends that the Department do sothrough the use of resources that have been acquired formilitary purposes. As a general matter, the committee expectsthe Department to minimize the number of personnel andresources that are applied exclusively to this Program; rather,

17

it would assign personnel and apply resources to the Programin conjunction with traditional military functions.

For the program to achieve its broader goals, it must be acooperative effort between the civilian and military sectors, andnot simply a military response to domestic problems. Thelegislation would provide that the Secretary of Defense shouldencourage the establishment of advisory councils onCivil-Military Cooperation at the state, regional, and local levelsto recommend projects, activities, and guidance for theProgram. The committee anticipates that activities of theNational Guard will be coordinated at the state level, whileactivities of active duty installations could be coordinated at thestate, local, or regional level. The councils should includeofficials from relevant military organizations, representatives ofappropriate local, state, and federal agencies, representativesof civic and social service organizations, and business andlabor representatives.

The legislation would require the Secretary of Defense toissue regulations governing assistance under this section,including the following: (1) rules governing the types ofassistance that may be provided under this section; (2)procedures governing the delivery of assistance so that,insofar as practicable, such assistance is provided inconjunction with, rather than separate from, civilian efforts; (3)procedures for appropriate coordination with civilian officials toensure that the assistance will meet a valid need and will notduplicate other public services; (4) procedures for the provisionof assistance in a manner that does not compete with theprivate sector; (5) procedures to minimize the degree to whichDoD resources, including personnel, are applied exclusively tothe program; and (6) standards to ensure that assistance isprovided in a manner that is consistent with the military missionof the applicable organization. The committee intends theserules to provide maximum decentralization and minimalapproval requirements so that the program is not strangled bypaperwork and coordination procedures.

The legislation would make it clear that the provision shouldnot be construed as authorizing use of the Armed Forces forlaw enforcement purposes, since military assistance to

18

domestic law enforcement agencies is governed by Chapter18 of Title 10, United States Code. However, this does notrestrict cooperative action programs with police officials inmatters that do not involve enforcement of the laws, such asrecreation and education programs. The legislation also wouldnot authorize use of Department of Defense personnel orresources for any program, project, or activity that is otherwiseprohibited by law.

The Armed Forces have narned a well-deserved reputationfor the excellence of their training and education programs.Military personnel are particularly well-qualified to providevaluable assistance in addressing the significant problems thatchallenge our nation's schools. At the present time, severalinstallations have entered into cooperative agreements withlocal school boards to provide such assiutance. The committeebelieves that such efforts should be given particular attentionand support in the implementation of the Civil-MilitaryCooperative Agreement Program.

Excerpt from House Report No. 966, 102d Congress, 2dSession, The Conference Report to Accompany H.R. 5006,The National Defense Authorization Act for Fiscal Year 1993(Oct. 1, 1992):

Civil-Military Cooperative Action Program (Sec. 1081).

The Senate amendment contained a provision (Sec. 1060)that would authorize the Secretary of Defense to establish acivil-military cooperative action program to use the skills,capabilities, and resources of the Armed Forces to assistcivilian efforts to meet critical domestic needs of the UnitedStates.

The program would have the following objectives: (1)enhancing individual and unit training and morale throughmeaningful community involvement; (2) encouragingcooperation between civilian and military sectors of society inaddressing areas of domestic need; (3) advancing equal

19

opportunity and improving relations among racial and ethnicgroups; (4) enriching the civilian economy through education,training, and transfer of technological advances; (5) improvingthe environment and economic and social conditions; and (6)ký,ovidir"i ooportunities for disadvantaged citizens.

The program wou,- he governed by three essentialprinciples: (1) any project under the program must beundertaken in a manner that is consistent with the militarymission of the unit in question; (2) the project must fill a needthat is not otherwise being met, and should not compete withthe private sector or with services provided by othergovernment agencies; and (3) the program cannot become abasis for justifying additional overall defense expenditures orfor retaining excess military personnel. Projects should beundertaken only with personnel, resources, and facilities thatexist for legitimate military purposes.

The House amendment contained no similar provision.

The important role that th~e military can play in meetingdomestic needs has been underscored by the critical role ofthe Armed Forcc-, in the aftermath of Hurricane Andrew.Although the relief effort required the cooperative efforts ofmany federal, state, and local entities, only the Department ofDefense had the equipment and personnel to provide thelogistics and infrastructure necessary for the timely provisionof essential food, shelter, medical, sanitat.on, andcommunications services for a disaster of this magnitude.

The conferees agree that a vibrant civil-military cooperativeaction program can assist civilian officials in addressing avariety of domestic needs, consistent with the military missionand the primary role of other government agencies and theprivate sector in dealing with domestic matters.

The House recedes.

20

APPENDIX B

Section 1081 of the National Defense Authorization Act forFiscal Year 1993, Public Law 102-484 106 Stat. 2514 (Oct.23, 1992):

Sec. 1081. Civil-Military Cooperative Action Program.

(a) FINDINGS.-Congress makes the following findings:

(1) Many of the skills, capabilities, and resources that theArmed Forces have developed to meet military requirementscan assist in meeting the civilian domestic needs of the UnitedStates.

(2) Members of the Armed Forces have the training,education, and experience to serve as role models for UnitedStates youth.

(3) As a result of the reductions in the Armed Forcesresulting from the ending of the cold war, the Armed Forceswill have fewer overseas deployments and lower operatingtempos, and there will be a much greater opportunity than inthe past for the Armed Forces to assist civilian efforts toaddress critical domestic problems.

(4) The United States has significant domestic needs inareas such as health care, nutrition, education, housing, andinfrastructure that cannot be met by current and anticipatedgovernmental and private sector programs.

(5) There are significant opportunities for the resources ofthe Armed Forces, which are maintained for national securitypurposes, to be applied in cooperative efforts with civilianofficials to address these vital domestic needs.

(6) Civil-military cooperative effoits can be undertaken in amanner that is consistent with the military mission and doesnot compete with the private sector.

21

(b) ESTABLISHMENT OF CIVIL-MILITARYCOOPERATIVE ACTION PROGRAM-Chapter 20 of Title 10,United States Code, is amended [by adding a new subchapterII at the end thereof entitled "Civil-Military Cooperation" and byinserting a new Section 410 in the new Subchapter I, as follows:

"410. Civil-Military Cooperative Action Program.

(a) ESTABLISHMENT.-The Secretary of Defense shallestablish a program to be known as the 'Civil-MilitaryCooperative Action Program'. Under the program, theSecretary may, in accordance with other applicable laws, usethe skills, capabilities, and resources of the Armed Forces toassist civilian efforts to meet the domestic needs of the UnitedStates.

(b) PROGRAM OBJECTIVES.-The program shall havethe following objectives:

(1) To enhance individual and unit training and morale inthe Armed Forces through meaningful community involvementof the Armed Forces.

(2) To encourage cooperation between civilian and militarysectors of society in addressing domestic needs.

(3) To advance equal opportunity.

(4) To enrich the civilian economy of the United Statesthrough education, training, and transfer of technologicaladvances.

(5) To improve the environment and economic and socialconditions.

(6) To provide opportunities for disadvantaged citizens ofthe United States.

(c) ADVISORY COUNCILS.

(1) The Secretary of Defense shall encourage theestablishment of advisory councils on civil-military cooperationat the regional, State, and local levels, as appropriate, in orderto obtain recommendations for projects and activities under theprogram and guidance for the program from persons who are

22

knowledgeable about regional, state, and local conditions andneeds.

(2) The advisory councils should include officials fromrelevant military organizations, representatives of appropriatelocal, state, and federal agencies, representatives of civic andsocial service organizations, business representatives, andlabor representatives.

(3) The Federal Advisory Committee Act (5 U.S.C. App.)shall not apply to such councils.

(d) REGULATIONS.-The Secretary of Defense shallprescribe regulations governing the provision of assistanceunder the program. The regulations shall include the following:

(1) Rules governing the types of assistance that may beprovided.

(2) Procedures governing the delivery of assistance thatensure, to the maximum extent possible, that such assistanceis provided in conjunction with, rather than separate from,civilian efforts.

(3) Procedures for appropriate coordination with civilian

officials to ensure that the assistance-

(A) meets a valid need; and

(B) does not duplicate other available public services.

(4) Procedures for the provision of assistance in a mannerthat does not compete with the private sector.

(5) Procedures to minimize the extent to which Departmentof Defense resources are applied exclusively to the program.

(6) Standards to ensure that assistance is provided underthis section in a manner that is consistent with the militarymission of the units of the Armed Forces involved in providingthe assistance.

(e) CONSTRUCTION OF PROVISION.-Nothing in this

section shall be construed as authorizing-

23

(1) the use of the Armed Forces for civilian law enforcementpurposes; or

(2) the use of Department of Defense personnel orresources for any program, project, or activity that is prohibitedby law."

24

U.S. ARMY WAR COLLEGE

Major General William A. StofftCommandant

STRATEGIC STUDIES INSTITUTE

DirectorColonel John W. Mountcastle

Director of ResearchDr. Gary L. Guertner

AuthorSenator Sam Nunn

EditorMrs. Marianne P. Cowling

SecretaryMs. Catherine J. DiMeo

Cover ArtistLawrence C. Miller

CompositionDaniel B. Barnett