UNCLASSIFIED

FOR OFFICIAL USE ONLY

UNTIL RELEASED BY

THE COMMISSION ON THE NATIONAL GUARD AND RESERVES

STATEMENT OF

GENERAL LANCE SMITH, USAF

COMMANDER

UNITED STATES JOINT FORCES COMMAND

BEFORE

THE COMMISSION ON THE NATIONAL GUARD AND RESERVES

5 OCTOBER 2006

UNCLASSIFIED

FOR OFFICIAL USE ONLY

UNTIL RELEASED BY

THE COMMISSION ON THE NATIONAL GUARD AND RESERVES

Mr. Chairman, members of the commission, thank-you for extending an
invitation to me to testify today. The work that your group is doing is
vitally important to this nation, our Armed Forces, and the security of
the American people. The "Citizen Soldier" is as old as our Republic.
They keep our military grounded and tied to the heartland, small towns,
and big city neighborhoods that are the true wealth of America. Their
combination of skills, both military and civilian, provides a resource
base of leadership, talent and hard work that is unique in my
experience. Throughout history, but especially since September 11^th^,
2001, our Guard and Reserve men and women have made enormous
contributions and sacrifices. They have guarded convoys, hunted
terrorists, led forces in combat, and participated in the elimination of
Abu Masab al-Zarqawi. Their performance has been exemplary. However, we
must ensure that we continue to develop and use this national asset
wisely and well. Today we face a far different environment than the one
which existed just over five years ago, and we must work together to
ensure we will have a robust joint capable reserve component in the
future.

We take great pride in sharing the accomplishments of Joint Forces
Command (JFCOM), its components, and our members in the Guard and
Reserve. We are a command with 1.1 million Soldiers, Sailors, Airmen and
Marines, serving globally, many of them from the Guard and Reserve. We
are truly a Total Force, and frankly we couldn't do our job without
their vital contributions. As we meet today, the Guard and Reserve are
participating across the globe in the War on Terror while providing
training and unique skills to transform the future force. They also
continue to stand ready to deploy again as they did during Hurricane
Katrina to provide any domestic support that is needed. This is why
we're pleased today to share why the Guard and Reserves are a vital part
to winning this war on terrorism and our vision to enhance their future
capability.

As we enter the sixth year of our war on terrorism that threatens
America's security, citizens, and our way of life, the Reserves and
National Guard have stood steadfast along side their Active duty peers
throughout. Nowhere has this been more evident than at Joint Forces
Command. JFCOM has been leaning forward to promote better Reserve
integration and jointness, as well as working with the Services through
our components to improve mobilization processes which impede efficiency
and add stress. Our goal is to promote reserve employments which are
stabilized and predictable; that allows members greater flexibility in
service, including volunteerism programs vice just mobilization; and
ensures better training of the individual and reduces stress on the
members, their families, and employers.

We count on Reserve and National Guard men, and women not only at our
headquarters and subordinate commands, but also in our role as the
Global Force Provider to the geographic combatant commands. JFCOM has
made organizational changes that allow us to maximize the capabilities
that the National Guard and Reserves have to offer. We created the Joint
Reserve Directorate, which was stood up in the weeks that followed
September 11^th^ in order to give the Joint Forces Commander one point
of access to ensure we assign the right RC person to the right job at
the right time.

At any given time nearly 200 Reserve Component (RC) members are on duty
with JFCOM around the globe. Our RC personnel are integrated fully
within the command in all areas of employment. Within our headquarters
staff, we are proud to have Flag and General Officers of every RC,
representing each of the Services, serving in vital positions of our
staff -- Maj Gen Bill Rajczak, from the Air Force Reserve, as our Deputy
for Joint requirements and Integration; Maj Gen John McLaren, from the
Army Reserve, as Vice Commander of the Joint Warfighting Center; as well
as Brig Gen Jacobsen from the Army National Guard, and Rear Admirals
Wendi Carpenter and Greg Timberlake from the Navy Reserve in other
leadership positions. We regularly count on Guard and Reserve senior
leaders to not only ensure we are fully engaging and developing our
reserve component to put us on the right track for success, but also
that JFCOM is meeting it's responsibilities to the other unified
commands.

Across our headquarters in Norfolk, we have Guard and Reserve personnel
in drill status in every directorate, such as the Standing Joint Force
Headquarters which currently relies on Gurardsmen and Reservists working
alongside their active duty counterparts to provide expertise, training
and subject matter experts as part of a standing Joint force able to
deploy worldwide when a crisis occurs. We have the same talented mix of
the total force in our subordinate commands such as the Joint
Communications Support Element, Joint Public Affairs Support Element,
Joint Transformation Command Intelligence, and others. These units
routinely deploy teams to Iraq and Afghanistan and to support recovery
efforts during natural disasters as they did last year in Pakistan after
the earthquake. Across the board, reservists are providing expertise in
Joint experimentation, modeling and simulation, business acumen for
organizational alignments, capitalizing on new technology, and training
our forces. They are providing in-depth analysis to enhance our
organization, build the right training vision and produce the future
coherent Total Force.

Our vision for appropriate Reserve forces is to prepare them to
seamlessly participate effectively in joint operations. Joint Forces
Command and the Services should provide training for Reserve Forces in
the same manner that they train Active Duty forces. As our experience
over the last six years demonstrates, our Reserve forces operate equally
with our Active Duty forces as an integral part of Joint operations---so
we are currently working with the Services, the Combatant Commands and
our Components to set improved training standards for the Total Force.

Our Component Commands---Air Combat Command from the Air Force, the
Navy's Fleet Forces Command, United States Army Forces Command, and
Marine Forces Command---all provide robust Guard and Reserve units and
personnel to the war on terror, and stand ready for action for homeland
support. They work hard to ensure that these forces are Joint trained
and ready. We are working to make enhanced training available across the
spectrum wherever it is needed in the Total Force.

Joint Forces Command achieves great synergy by fully integrating the
reserve forces into our training---from senior leader courses such as
CAPSTONE and KEYSTONE to mission rehearsal exercises. This also benefits
the Services, the Combatant Command, and the individual Reserve and
Guard members. We provide enhanced Joint training to the Services'
rotational and pre-deployment training programs. For the Army, this
includes training of deploying tactical brigades at the National
Training Center, Joint Readiness Training Center, and Joint
Multinational Readiness Center, as well as importing joint training to
the Battle Command Training Program for deploying tactical staffs. For
the Air Force, this joint training, specifically at Red, Blue, and Green
Flag exercises, better prepares Air Expeditionary Forces, close air
support capable squadrons, and Air Operations Centers for execution of
their missions in Iraq and Afghanistan. JFCOM's Joint National Training
Capability (JNTC) also supports Navy Fleet exercises, in port and at
sea, and Marine Corps training rotations at Twenty Nine Palms. We are
also actively engaged with the leaders of the reserve components to
ensure they have the fidelity and range architecture to integrate fully
into the JNTC plan.

We are also using Joint National Training Center to support Guard
training. Our methodology uses our accreditation/certification process
to provide this support. In Calendar Year 2007, we plan to develop
collaborative understanding of the joint enhancements required at key
National Guard training programs. Through this process, we will design
in the required joint context to ensure Guard members receive the same
training as Active duty members.

The Department of Defense Training Transformation Implementation Plan
was built to ensure the National Guard Bureau is integral to the
development of several capabilities. These include initiatives to
improve training simulations and training range infrastructure, create a
mission rehearsal and joint training capability, and develop a robust
joint training research and development program.

Near term efforts include a fiscal year 2007 plan to connect the ARCNet
(USAF reserve network) and then the GuardNet, the National Guard's
national network for distributed education and training, with the Joint
Training and Experimentation Network (JTEN). This will enable the Air
Reserve and later the Guard to access the entire array of joint training
tools such as the live, virtual, constructive training environment, and
will maximize investment efficiencies for the entire joint training
community. This distributed infrastructure allows weekend Guard training
audiences to "plug in" from home station to our worldwide joint training
environment -- supporting our goal to "train like we fight." Finally,
our support to the important Joint Task Force--State training program is
making efforts to assist the states to ensure their troops receive the
same quality and fidelity of training. This is truly transformational
because it allows the National Guard to collaborate, experiment and
exercise in a collective manner with their Active counterparts and as we
expand this capability with our coalition partners we will start to see
a truly integrated trained Total Force.

In January 2006, JFCOM became the Office of Primary Responsibility for
the Joint Knowledge Development and Distribution Capability (JKDDC).
JKDDC and JNTC are two of the three major initiatives that make up DoD's
Training Transformation effort. As you can see from Figure 1 we have
increased our web-based training programs significantly and the programs
are aimed at increasing joint training for the Total force.

![](media/image1.wmf){width="5.8625in" height="3.751388888888889in"}

Course development is underway and our main effort is to develop
education products that will serve the joint training requirements of
the Total force. Our key to effective Joint Training is detailed in
Figure 2 with the JKDDC web portal that will allow Guard and Reservists
to understand their training requirements, see their predeployment
readiness tasks, provide interactive training software and research and
truly be an enhancer from predeployment, through deployment and
ultimately provide feedback post deployment. We believe that cultural
and basic language training education tools are essential to success in
the current conflict and these are the type of online Joint tools that
are paramount as we develop this capability. This portal will also have
sections that emphasize what the individual augmentee needs to
accomplish to be ready, allow them to provide feedback, and constantly
give them a status update so they can check their readiness against
actual deployment requirements.

![](media/image2.wmf){width="6.196527777777778in"
height="3.751388888888889in"}

Training is a major driver for changing the culture of the force to
properly employ new technologies, to implement process improvements
based on lessons learned and to deal with the evolving security
environment. The JNTC initiative is a key contributor to achieving
future joint training capacity in order to support the transforming
Total Force and enhance interoperability with our multinational and
interagency partners.

There are challenges. First, we must provide trained and ready joint
forces to the Combatant Commanders to fight not only the Global War On
Terrorism, but support other possible conventional contingencies. We
must also be capable of generating forces to respond to major disasters
when directed to do so. JFCOM must ensure joint training and readiness
needs of those forces. Providing sufficient numbers of mission-ready,
joint trained and equipped forces for the missions assigned to the
geographic combatant commanders will continue to be a challenge.
However, we can say that over the last few years in our role as managing
conventional forces globally we have worked with the offices of the
Secretary of Defense and through our Components, the Services and the
Total Force to achieve better visibility on the Total Force and to
understand the current operations tempo while trying to provide some
level of stability where possible. We will continue to work with the
offices of the Secretary of Defense to develop tools such as the Defense
Readiness Reporting System that allow us to properly source the Total
Force while improving stability, and predictability for everyone.

Second, we must continue transforming our Total Force for the future
while prosecuting current campaigns. Although challenging, it is
important to balance the needs of the Combatant Commanders for current
operations with the need to modernize and modularize Joint and Service
forces to increase their capability to meet the 21^st^ Century security
challenges. We can tell you that the organizations, the capabilities and
the way that we are training and fighting this conflict have improved
significantly over the last three years for the Total Force, and it will
continue to improve. Third, we need to ensure the requirements and
acquisition processes can rapidly provide solutions to meet combatant
commanders' short term joint needs. We need to improve our ability to
quickly implement solutions to joint lessons learned and integrate
promising concepts and technologies without significantly disrupting
existing programs within the execution years.

On 1 October 2006, JFCOM assumed responsibility for joint individual
augmentees. Since 9/11 the daily requirement for individual augmentees
serving in Joint Task Force organizations has increased significantly
with about 27% of those requirements filled by reserve component
personnel. The number of individual augmentees in operational Joint Task
Force Headquarters staffs now approaches 50% of the total manning.
Because more than 80% of major military operational contingencies have
less than one month of planning time before execution, it is imperative
to rapidly form the JTF Headquarters with trained and qualified
personnel. This increases the need for these individuals to be trained
in an environment that provides joint context before being assigned to
augment the headquarters staff.

Historically, individual augmentee manning requirements have been
largely filled through an ad hoc approach. Active duty personnel are
often sourced from operational Service units; however, this practice is
disruptive and negatively impacts Service unit mission capability,
cohesion, and readiness. The nature of individual augmentee sourcing (as
compared to unit sourcing) results in less initial cohesiveness, due to
a lack of pre-existing relationships, which degrades teamwork and
readiness at the Joint Task Force headquarters. Furthermore,
inconsistent periods of assignment create excessive personnel turnover,
undermining Joint Task Force Headquarters capability and continuity.
Many individual augmentees lack sufficient joint or Joint Task Force
related experience, and have received little or no training to allow
them to arrive in theater with the requisite skills required. By the
time an individual augmentee reaches peak effectiveness and knowledge in
his or her assignment, it is often time to be replaced with another
individual augmentee.

There are several ways to address these shortfalls. We may wish to
establish Joint Reserve Units at COCOM and Service headquarters that are
trained to man Joint Task Force headquarters. More short courses and
flexible delivery mechanisms for Joint Professional Military Education
phase II for Guard and Reserve personnel would also be helpful. Finally,
we have to establish a designation for the reserve component as "Joint
Qualified" or as a Joint Specialty Officer (JSO) that allows these
individuals to be tracked.

As the Joint Force integrator, JFCOM is responsible for recommending
changes in doctrine, organization, training, material, leadership and
education, personnel, and facilities to integrate Service, defense
agency, interagency and multinational capabilities. In this capacity, we
have provided, and continue to provide, capabilities that empower the
total force. The Reserve Component brings an excellent blend of military
expertise that coupled with civilian skill sets make them even more
valuable in developing such capabilities as modeling and simulation
analysis tools, information technology integration, and joint command
and control enablers. We must also be mindful that this value represents
a sacrifice for employers and communities.

As the Joint Force Provider, JFCOM has combatant command over a large
portion of the conventional forces to include most of the National Guard
and Reserves. We provide them as trained and ready joint-capable forces
to the other Combatant Commanders when directed by the Secretary of
Defense. This includes recommendations on appropriate allocation of
forces to meet requirements with the appropriate level of capability
with the least amount of acceptable risk. United States Joint Forces
Command must have visibility on the capabilities and readiness levels of
the available forces to make the best recommendations possible.

One critical area where proper allocation of the Guard and Reserve is
critical is Homeland Security. Following Hurricane Katrina, JFCOM
resources, such as the Standing Joint Force Headquarters and the Joint
Center for Operational Analysis and Lessons Learned, deployed to the
affected area to coordinate relief and evaluate the response and follow
on actions. Based on this analysis, we believe the National Guard should
remain a dual-missioned force available for both State and Federal
Support missions. However due to our Joint Force Provider
responsibility, JFCOM must have visibility on all National Guard
operations to include those executed under US Code Title 32 and those in
a state active duty status. Visibility will allow for analysis and
recommendations on the implications on current/future operational
commitments and impacts on personnel and equipment availability and
readiness. The use of the National Guard equipment, even if reimbursed
by the state, will have readiness impact such as engine hours and
maintenance schedules.

JFCOM has a responsibility to be able to provide properly organized,
trained and equipped Joint forces globally to include the National Guard
and Reserves. Some of the units with a Joint designation are the Joint
Reserve Units, Joint Force Headquarters-State, Civil Support Teams,
Chemical Biological Radiological Nuclear Environment Enhanced Response
Force Package, National Guard Reaction Forces, and Critical
Infrastructure Protection-Mission Assurance Assessments. JFCOM, working
with the services, NORTHCOM and the National Guard Bureau, have
committed to meeting the unique requirements of the Reserve Component to
improve the readiness of these Joint units.

To better support disaster and humanitarian relief operations and
improve the efficiency of the Total Force, JFCOM has worked with the
offices of Secretary of Defense to develop a capability we've named
HARMONIE, a web based portal and domain on the internet where all
agencies involved in these critical mission---both government and
nongovernment---can exchange information. With this capability, crisis
responders, whether they are at the local, state, or national level can
immediately stand up web pages and connect to other users, thus giving
them increased awareness. We've also developed a National Security
Agency certified Cross-Domain chat capability that facilitates
communication between groups as different levels of security and
information access. Both HARMONIE and the Cross Domain chat solutions
were used in STRONG ANGEL III, a disaster response exercise involving
600 military members, Defense Department employees and contractors,
first responders, nongovernmental organization representatives and
technologists.

Further, we are applying our Modeling and Simulation resources and
experience to improve Total Force response. We are learning how to
better model Norfolk, Virginia, or Portland, Oregon, or any American
city in the same manner we have modeled overseas urban environments for
irregular warfare training, but in this instance we can experiment with
ramifications caused by hurricanes or other natural disasters. This
allows us to test different preparation scenarios as well as post
disaster recovery plans. This is a unique capability we offer the
Homeland Security environment and one we take seriously.

In JFCOM we pride ourselves on the ability to integrate Guard and
Reserve forces and facilities. This is where much of the expertise and
the experience to address a large aspect of Homeland Security lay. This
is business as normal based on availability of the force and focus of
the work. We continue to strengthen ties between JFCOM and NORTHCOM to
better refine disaster response plans and procedures. Prior to and
during hurricane season the JFCOM and NORTHCOM Commanders met to analyze
trends, alert units to possible missions, review lessons learned from
last year and conduct exercises to ensure readiness.

We are working to improve Joint Command and Control across the Total
Force. Joint Command and Control below the COCOM level currently depends
on the ad hoc creation of headquarters elements -- both personnel and
equipment -- and sufficient time to train the new unit in command and
control functions, forge them into a coherent team, and employ them in
the operational area. At the operational level, we organize, train, and
equip primarily as Service headquarters, but we nearly always operate as
an integrated task force of joint, interagency, and multinational
capabilities. This is most always a Joint Total Force of individuals. In
order to ensure effective operations across the spectrum, we must
improve the formation and sustainment of Joint Task Force headquarters
capable of commanding and controlling integrated operations (with forces
from all services / components, interagency, and multinational partners)
not only to respond to domestic natural disasters, but to meet worldwide
rotational and contingency requirements as well. During Hurricane
Katrina we deployed the Deployable Joint Command and Control system
which provided integrated Command and Control for military responders.
We are developing other more agile systems and information tools that
will improve Joint Task Force crisis response. As the Joint Force
Experimenter we are working to mature concepts into capabilities to
improve crisis response and better situation awareness. We have started
to partner with state government in Virginia to test these concepts and
look forward to making these capabilities available to others.

Joint Forces Command remains committed to winning the global war on
terrorism, securing peace in Iraq and Afghanistan, and combating weapons
of mass destruction, while enhancing current joint warfighting
capabilities and transforming to meet the challenges we face now and in
the future. However, we could not continue our mission within Joint
Forces Command, nor could we support the other combatant commands,
without the operational capabilities and skills of the Reserve and
National Guard. Thank you for the opportunity to talk about Joint Forces
Command; our accomplishments, capabilities, challenges and future vision
to empower, enhance and improve the Total Force. We appreciate your
efforts on behalf of the National Guard and Reserves.