The Report of the 

Headquarters Review Group 

Concerning the 

Religious Climate 

at the 

U. S. Air Force Academy 

22 June 2005

HEADQUARTERS, UNITED STATES AIR FORCE 

i 

Executive Summary

On 2 May 2005, the Acting Secretary of the Air Force, Michael L. Dominguez, 

directed the Air Force Deputy Chief of Staff, Personnel, Lieutenant General Roger A. 

Brady, to form a cross-functional team to assess the religious climate at the United States 

Air Force Academy (USAFA) and their progress in integrating principles of respect in 

their character development program. Specifically, the team was directed to assess policy 

and guidance on the subject, appropriateness of relevant training for all personnel at 

USAFA, practices in the Academy community that would either enhance or detract from 

a climate that respects both the “free exercise of religion” and the “establishment” clauses 

of the First Amendment, effectiveness of USAFA mechanisms in addressing complaints 

on this subject, and relevance of the religious climate to the entire Air Force. The team 

was not tasked to investigate cases of specific misconduct, nor to determine individual 

accountability, but to refer specific cases to appropriate authorities, including the Air 

Force Inspector General. Two specific cases involving individuals who have been 

mentioned repeatedly in the press (Brigadier General John Weida and Captain Melinda 

Morton) are being reviewed by Inspector General channels; therefore, these cases are not 

resolved in this report. Seven other specific cases reported to the team were referred to 

the chain of command for follow-up. 

The Deputy Chief of Staff, Personnel, assembled a team (with Headquarters 

representatives from Personnel, Judge Advocate General, General Counsel, Chaplain 

Service, Legislative Liaison, Public Affairs, Manpower & Reserve Affairs, Secretary of 

the Air Force and the Air Force Chief of Staff Command Staffs, as well as the Office of 

the Secretary of Defense and the United States Naval Academy) which reviewed policy 

and guidance documents, court cases, press reports and findings of previous groups that 

had reported on the issue of religious climate at the USAFA, and coordinated with the 

academy staff in preparation for the on site visit. The team was informed on issues of 

concern by previous surveys, team reports and media coverage. 

The HQ USAF team found a religious climate that does not involve overt 

religious discrimination, but a failure to fully accommodate all members’ needs and a 

lack of awareness over where the line is drawn between permissible and impermissible 

expression of beliefs. The Academy is aggressively engaged in dealing with an issue that 

has been the subject of rigorous debate for throughout the Nation’s history. The 

Superintendent responded to some well-publicized events early in his tenure and, upon 

finding evidence of some concern about religious bias in anonymous surveys he 

conducted, began a much broader effort to incorporate the importance of religious respect 

in the Academy’s character development program. This continuing effort to nurture a 

climate of respect for the diversity of beliefs at the Academy has received the support of 

the USAFA community, including many who have expressed concern. The team found 

that the events that have been reported in the media framed the discussions and were 

cited repeatedly by individuals expressing concern about the religious climate. The team 

also researched the background behind the widely reported “55 complaints,” in reality a 
ii 

collection of observations and events reported by about thirteen people, and purported to 

have taken place over a four-year period. Throughout the assessment, the methodology 

used by the Review Group, using both individual interviews and focus groups, did not 

yield empirical data regarding specific events, but facilitated important discussions that 

aided the team in assessing the overall climate. 

During the visit, the team was made aware of seven specific events of what 

appeared to be questionable behavior, and these events were referred to the chain of 

command for follow-up. The team identified nine findings regarding the overall climate 

and made nine recommendations that are detailed in the report. 

 The findings covered the following areas: 

• Perception of religious intolerance. 

• Inadequate guidance regarding religious expression. 

• Training concerning religious diversity and respect. 

• Occurrences of perceived bias. 

• Accommodation of religious observances (to include flexibility in cadet 

scheduling process and dietary needs). 

• USAFA access for affiliated chapel programs. 

The recommendations include actions that are required of USAFA and of HAF in 

the following areas: 

• Develop policy guidance for Air Force commanders and supervisors regarding 

religious expression. 

• Reemphasize policy guidance for commanders and staff judge advocates 

regarding appropriate endorsement and advertising of unofficial or affiliated 

groups of which Air Force members may be a part and oversight of these groups 

that have access to Air Force personnel. 

• Reemphasize the requirement for all commanders to address issues of religious 

accommodation up front, when planning, scheduling, and preparing operations. 

• Develop guidance that integrates the requirements for cultural awareness and 

respect across the learning continuum, as they apply to Airmen operating in Air 

Force units at home as well as during operations abroad. 

• Direct USAFA to develop an integrated plan, as part of its overall character 

development program, that promotes increased awareness of and respect for 

diverse cultures and beliefs in its military, academic, and athletic curriculum. 

• Provide plan for ensuring a single focal point for cadets, as well as permanent 

party, to raise issues regarding the human relations climate. 

• Continue robust use of internal controls to assess climate and implement 

corrective action. Additionally, coordination among the associated agencies 

should be reviewed to improve cross-flow of information to command. 

• Provide continuing opportunities for all cadets to learn about, discuss, and debate 

issues of religion and spirituality in a developmental setting with peers and role 

models, as such discussion is essential to character development. 
iii 

These findings and recommendations regarding the religious climate at USAFA 

can be summarized in three areas: institutional policy, cadet behavior and faculty and 

staff behavior. 

The Department of Defense, HQ USAF and the USAFA leadership have provided 

appropriate policy regarding the importance of non-discrimination and a climate of 

respect. However, there is a lack of operational instructions that commanders and 

supervisors can use as they make decisions regarding appropriate exercise of religion in 

the workplace. 

 

The team found that failure to address the religious needs of cadets of minority 

religions, during the planning phase of academy schedule development, placed the 

burden for seeking religious accommodation on the cadets. This created the impression 

among some cadets that USAFA was insensitive to their religious beliefs and needs. 

There were reports made to the team by cadets of religious slurs and disparaging 

remarks between cadets. Two particular incidents were referred to leadership by the HQ 

USAF team for follow-up. Both incidents have been resolved to the satisfaction of the 

complainants. The cadets, both individuals and in focus groups, reported that such events 

do occur occasionally but have become less frequent over the last two years, indicating 

an improving climate. The examples of religious slurs and disparaging remarks 

presented to the team are clearly unacceptable and cannot be tolerated. They also 

accentuate the importance of understanding that the USAFA is about the development of 

character in 18-22 year olds who are becoming adults, which includes interacting with 

others cadets of different belief systems and determining what they themselves believe. 

This growth process sometimes involves inappropriate behavior. USAFA leadership is 

dealing with that behavior appropriately. 

There were also reports, usually framed in the context of events reported in the 

media, that some cadets had been overly aggressive in the expression of their faith, 

offending some and, in some cases, creating an impression of insensitivity regarding the 

beliefs of others. Likewise, some members of the faculty and staff also have strong 

religious beliefs that have, on occasion, been expressed in ways that others found 

offensive. While these expressions appear to be well intentioned, they reflect a lack of 

awareness that their position as instructors and government officials made these 

expressions inappropriate in a particular setting. USAFA leadership has identified some 

of these expressions of faith as inappropriate in the environment in which they were 

made, and has taken action to correct them. 

While the team talked to individuals who were concerned or who had been 

offended by what they regarded as a climate of religious bias, a significant majority of 

individuals contacted, including cadets, faculty and staff, expressed the opinion that the 

overall climate had improved over the past two years. Many attribute this improvement 

to the efforts of the USAFA leadership in implementing the Agenda for Change (a map 

for cultural change at the Academy directed by SECAF and CSAF) and the 
iv 

recommendations of other review groups, as well as leadership placing special emphasis 

on the subject of respecting a diversity of views in the area of religion. Many individuals 

were not aware of the issue or had only been made aware through media reports. 

Clearly, there are challenges of respect and accommodation that the USAFA 

leadership must continue to address very aggressively. The HQ USAF team found they 

are doing that. While overt discrimination and other clearly inappropriate behavior 

cannot and will not be tolerated, what exactly does or does not constitute “establishment” 

is not always as clear. The task of providing for free exercise of religion, while not 

appearing to establish a religion, is complex enough in any government setting. 

Arguably, it is even more complex in a military environment and yet again more 

challenging in a university, military setting. 

In an effort to minimize the risk of discrimination or the perception of 

“establishment,” some might suggest that religion and discussion of it be minimized, 

outside the statutory allowances specific to the chaplaincy. However, this would have at 

least two equally undesirable effects. First, it would ignore that clause of the First 

Amendment that protects the free exercise of religion. Second, and perhaps as important, 

it would deny the unique nature of military service. 

The development of leaders of character is the mission of the USAFA. And, it is 

undeniable that for many individuals their character development is inseparable from 

their religious beliefs. Hence, it is incumbent upon the USAFA to afford the opportunity 

for cadets to develop their character in that context, while respecting the fact that cadets 

have differing religious beliefs or may have none at all. Put simply, the academy should 

provide appropriate development opportunities to meet the needs of all cadets. 

Unnecessary restriction of that opportunity would have a deleterious effect on the 

character development of cadets at a particularly formative time of their lives. 

Similarly, inherent in military service is the very real potential that individuals 

may be asked to forfeit their lives in defense of the Nation. Again, for some individuals, 

the ability to withstand the privations of military service and face the prospect of death in 

the performance of their duties requires strength of character that is founded upon their 

religious faith. It is their source of strength in times of trial. Deliberately minimizing the 

ability of cadets and their role models to discuss these weighty issues in a developmental 

setting, including their foundational beliefs, would undermine the maturation and 

character development process we seek to foster. 

While this challenge is daunting, it is not “Mission Impossible.” The task is not 

simple, but the principle is. The USAFA, and the Air Force as a whole, must create and 

nurture a climate founded on respect, the very bedrock of our core values of Integrity 

first, Service before self, and Excellence in all we do. 

Critical for all Airmen is that these principles become integrated into every aspect 

of our training and continuing education. Critical to commanders is that they be given a 

set of guidelines upon which to base decisions regarding how they recognize and build on 
v 

the inherently spiritual nature of their people and create the conditions that demonstrate 

the value of and respect for the great diversity of belief systems within our Air Force. 

 ROGER A. BRADY 

Lieutenant General, USAF 

Deputy Chief of Staff, Personnel 

 
vi 

Table of Contents

Executive Summary........................................................................i 

Table of Contents...........................................................................vi 

I. The Secretary’s Tasking..........................................................1 

II. Methodology........................................................................1 

III. Background and Chronology........................................................4 

IV. Review of Documents, Programs, and Focus Groups/Interviews........14 

A. Introduction 

B. Governing Guidance 

C. SPIRE 

D. RSVP 

E. Internal Control Mechanisms 

F. Academy Surveys 

G. Focus Groups 

H. One-on-One Interviews 

I. USAFA’s Initial Consolidation of Concerns 

J. December 2004 Headquarters Air Force Assessment 

K. June 2005 National Conference on Ministry to the Armed Forces Assessment 

V. Findings and Recommendations.....................................................35 

VI. Conclusion............................................................................40 

Attachment A.................................................................................41

SECAF Memo, dated 2 May 05, Subject: Religious Climate at USAFA 

Attachment B.................................................................................42 

USAFA Culture Change Plan

Attachment C.................................................................................43 

 34 TRW/CC e-mail dated 27 Feb 04, Subject: Religious Respect 
vii 

Attachment D ................................................................................44 

 USAFA/CC e-mail dated 3 Mar 04, Subject: Superintendent’s Guidance 

Attachment E.................................................................................45 

USAFA/HCX Memo dated 30 Jul 04, Subject: After Action Report: BCT II 

Chaplain Practicum Training: Special Program in Pastoral Care, with the 

resources, supervision, and selected students of Yale Divinity School 

 

Attachment F.................................................................................47 

SPIRE Covenant 

Attachment G.................................................................................49 

 USAFA Campaign Plan to Address Religious Climate Concerns 

Attachment H.................................................................................50 

Americans United for Separation of Church and State Report, dated 28 Apr 05 

Attachment I..................................................................................66 

 USAFA Religious Respect Policy Letters 

Attachment J..................................................................................73 

 SAF/MRE Staff Assistance Visit to USAFA, 13-15 Dec 04, dated 25 Jan 05 

Attachment K.................................................................................80 

 

NCMAF Report, dated 10 Jun 05

Attachment L...................................................................................90 

Glossary 
1 

I. The Secretary’s Tasking

On 2 May 2005, the Acting Secretary of the Air Force, Michael L. Dominguez, 

tasked the Deputy Chief of Staff, Personnel, Lieutenant General Roger A. Brady, to 

assemble a cross-functional team to assess the religious climate at the United States Air 

Force Academy (USAFA) and the Academy’s progress in integrating principles of 

respect in their character development program (Attachment A). Specifically, the team 

was directed to assess: 

a. Air Force and Academy policy and guidance regarding the subject of religious 

respect and tolerance. 

b. Appropriateness of relevant training for the cadet wing, faculty and staff. 

c. The religious climate and assessment tools used at the USAFA. 

d. Practices of the chain of command, faculty, staff and cadet wing that either 

enhance or detract from a climate that respects both the “free exercise of 

religion” and the “establishment” clauses of the First Amendment. 

e. Effectiveness of USAFA mechanisms in addressing complaints on this subject 

to include the chain of command, the Inspector General and the Military 

Equal Opportunity office. 

f. Relevance of the religious climate to the entire Air Force. 

The team was not tasked to investigate cases of specific misconduct, or to 

determine individual accountability. Any such cases that were identified have been 

forwarded to the appropriate authorities, including the Air Force Inspector General. 

At the core of this issue is the First Amendment to the Constitution of the United 

States, which all members of the U.S. Armed Forces have sworn to protect and defend. It 

states that, “Congress shall make no law respecting an establishment of religion, or 

prohibiting the free exercise thereof...”. The United States Air Force operates within 

these constitutional guidelines by embracing as its Core Values: Integrity First, Service 

Before Self, and Excellence In All We Do. Inherent to these values is respect--respect 

for oneself, for the Air Force and its values, and for each other. The relevant issue for the 

team was to determine whether USAFA is fostering this foundation of respect in its 

efforts to develop leaders of character for the United States Air Force and the Nation. 

II. Methodology

The team’s approach to accomplish the assigned mission was to conduct a 

thorough review of existing guidance, followed by a USAFA site visit during 10-13 May 

to obtain first-hand information. The site visit began with a formal in-brief by USAFA 

staff to include a chronology of events, an overview of their respect program, and their 

chaplaincy programs. The entire team also participated in a Respecting Spiritual Values 

of all People (RSVP) session. Following the in-brief, program reviews focusing on 

religious accommodation were conducted in the following areas: policies, training, 

assessments, complaint mechanisms, and chaplaincy. Additionally, a three-tiered 

approach was incorporated to collect personal insights and concerns. This consisted of 
2 

interviews with key personnel; focus groups with cadets, faculty, and staff; and open 

sessions where anyone who wanted to could walk in for a private one-on-one interview. 

To maximize the opportunity to obtain thorough insights and honest feedback, the 

following information was provided at the beginning of each interview session: 

 

a. This is a Higher Headquarters Review Group—not the Inspector General. 

b. This is not an investigation or an inquiry. 

c. We are “taking the pulse” of the USAFA community regarding religious 

practice and respect. 

d. We will not attribute your comments unless a policy or statute has been 

violated or someone’s health, welfare, or safety is in jeopardy. 

e. If we are made aware of specific acts of misconduct, and have sufficient 

information to act upon, we are obligated to report that to appropriate authorities. 

The team interviewed 20 key personnel: 

 

USAFA/CC – Lieutenant General John Rosa, Superintendent 

TRW/CC – Brigadier General John Weida, Commandant and 34th Training Wing 

Commander 

DF – Brigadier General Dana Born, Dean of the Faculty 

AH – Dr. Hans Mueh, Director of Athletics 

AH – Mr. Fisher DeBerry, Head Football Coach 

DS – Colonel Wayne Kellenbence, Director of Staff 

HC – Chaplain, Colonel Michael Whittington, Senior Staff Chaplain 

JA – Colonel Michael McAntee, Staff Judge Advocate 

IG – Colonel Thomas Philipkosky, Inspector General 

PL – Colonel Harvey Johnson, Commander, USAFA Preparatory School 

CV-P – Colonel Debra Gray, Vice Commandant for Strategy & Plans 

CWC – Colonel Joseph Mazzola, Director, Center for Character Development 

CVK – Major Kelly Phillips-Henry, Director, Cadet Counseling Center 

 

XPC – Lieutenant Colonel Vicki Rast, Director, Climate & Culture Division, Plans and 

Programs Directorate 
3 

XPC – Dr. Heidi Smith, Assoc Prof, Behavioral Science & Leadership; and staff member 

of Climate & Culture Division, Plans and Programs Directorate 

ABW – Colonel Susanne LeClere, 10th Air Base Wing Commander 

ABW – Colonel Ellsworth Tulberg, 10th Air Base Wing Vice Commander 

ABW – Captain Joseph Bland, Former 10th Air Base Wing Military Equal Opportunity 

Officer 

AOG - Mr. James Shaw, President & CEO USAFA Association of Graduates 

DFM – Mr. Michael Roth, USAFA Graduate and Visiting Professor, Management 

Department 

Focus groups were the second method used to develop a perspective on the 

USAFA climate. Cadets were randomly selected based on the following categories: First 

and Second Class (Senior and Junior) or Third and Fourth Class (Sophomore and 

Freshman) Jewish, Protestant, Catholic, mixed, and other. “Other” refers to those cadets 

who identify themselves with a religion not listed above, or no religion, or who identify 

themselves as Atheist or Agnostic. Permanent professors and senior faculty were 

interviewed in their own groups separate from the remaining faculty and staff to avoid 

any perception of intimidation. All groups were limited to a maximum of ten people. 

197 personnel participated in the following groups: 

Permanent Professors 3 Groups 

Faculty/Staff 6 Faculty Groups and 2 Staff Groups 

Cadets 2 Protestant Groups (Sr/Jr and So/Fr) 

2 Catholic Groups (Sr/Jr and So/Fr) 

3 Jewish Groups (Sr/Jr and So/Fr and Mixed) 

2 Mixed Faith Groups (Sr/Jr and So/Fr) 

2 “Other” Groups 

USNA Exchange Midshipmen 1 Group 

Athletic Coaches 2 Groups 

Air Officers Commanding (AOCs) 1 Group 

Academy Military Trainers (AMTs) 1 Group 
4 

Team members were available throughout the entire visit for one-on-one, private 

interview sessions in the cadet area (Fairchild Hall) as well as on the main base 

(Community Center). A total of 69 one-on-one open interviews were conducted. 

Between the program reviews, key personnel interviews, focus groups, and open 

sessions, over 300 people met with Review Group members during the visit. Designated 

team members also observed RSVP sessions that were conducted for permanent party 

and cadets. 

Following the team’s return to Washington additional interviews were conducted 

with Dr. Kristen Leslie (Assistant Professor of Pastoral Care and Counseling, Yale 

University Divinity School); Col Harvey Johnson, Commander, USAFA Preparatory 

School; a 2004 USAFA graduate who had previously highlighted concerns; Chaplain, 

Captain Melinda Morton (one of the USAFA Protestant chaplains); and Mr. Mikey 

Weinstein, a 1977 USAFA graduate. 

 

After the initial assessment briefing to the Acting Secretary of the Air Force and 

the Chief of Staff, the Air Force leadership decided to invite a team of five members from 

the National Conference on Ministry to the Armed Forces (NCMAF) to visit the 

Academy (7-9 June) for the purpose of providing an external perspective and informing 

the assessment of the Review Group. This team that conducted the follow-on assessment 

was comprised of retired military chaplains and one former vice wing commander. They 

represented the Church of Jesus Christ of Latter-Day Saints, Jewish, Orthodox, Reformed 

Christian Church, and Religious Society of Friends (Quaker) faith groups. 

The NCMAF provides ecclesiastical endorsement for clergy who serve as 

chaplains in the armed forces; it is a non-profit, independent organization supported 

entirely by voluntary contributions from the member faith groups and other interested 

parties. Members represent the total theological spectrum of faith organizations that 

make up the organized religious community of the United States. Their members, as 

endorsers for particular faith groups, are the points of contact between the Armed Forces 

and over 250 religious denominations and faith groups. 

III. Background and Chronology of Events

A. Background

Religion is a subject of interest to many Americans in general, and no less so to 

the age group that the USAFA cadet wing represents. According to a recently published 

AP-Ipsos survey (a leading global survey-based research group), “Religious devotion sets 

the United States apart from some of its closest allies. Nearly all U.S. respondents said 

faith is important to them and only 2% said they do not believe in God.” 

The Religious Congregations and Membership study published in 2000 by the 

Glenmary Research Center in Nashville, Tennessee, indicated some of the more 

conservative Christian religious groups (e.g., Latter-Day Saints, Churches of Christ, 
5 

Assemblies of God, Roman Catholic) increased membership by 16 to 19% over the 

decade from 1990 to 2000, while more mainline Protestant churches declined in strength 

over the same period. The Presbyterian Church, USA, for example, declined 12%. 

Glenmary director Ken Sanchagrin noted, “Socially conservative churches that demand 

high commitment from their members grew faster than other religious denominations in 

the last decade...astounded to see that by and large the growing churches are those that 

we ordinarily call conservative. And when I look at those that were declining, most were 

moderate or liberal churches. And the more liberal the denomination, by most people’s 

definition, the more they were losing.” 

This growth in interest and numbers is consistent with what research conducted 

by the Cooperative Institutional Research Program (CIRP) at the University of California, 

Los Angeles, found on college campuses across the nation. They found that among 

students entering college in 2004, three-fourths say they are “searching for 

meaning/purpose in life,” eight in ten believe in God, more than two-thirds pray, more 

than half perceive God as “love” or as the “creator” and about half experience God as a 

“protector.” USAFA data for the class entering in 2004 show that USAFA cadets are 

more likely to identify themselves as Christian than students at other institutions and 

while measures of spirituality (time spent in prayer/meditation, consider themselves 

“born-again” Christians, attended religious service in past year) are trending downward 

for students at other institutions, they are trending upward for USAFA cadets. Put 

simply, there is a strong interest in the religious aspects of life among a majority of 

USAFA cadets. Ongoing research by CIRP indicates they are somewhat more 

conservative and more likely to identify themselves as religious/spiritual than their 

college-age peers across the nation. 

As demographic background regarding the Air Force, a recent check (31 March 

2005) of the Air Force Personnel Data System (containing all Air Force military records, 

officer and enlisted) reflects that 80% (286,730) identified themselves of religions that 

are considered Christian-based. This is compared to 85% of USAFA cadets and 78% of 

USAFA permanent party who consider themselves aligned to a Christian religion. 

The Air Force is committed to upholding a Constitution that both protects each 

American’s right to freely exercise their religion and forbids the government’s 

establishment of religion. Balancing the competing requirements of the Establishment 

Clause and the Free Exercise Clause of the First Amendment has long been a challenge to 

the federal government. The Supreme Court has noted that while the two clauses express 

complementary values, they often exert conflicting pressure. While we believe the Air 

Force as a whole has effectively navigated this difficult terrain, this task is made all the 

more complex given the unique learning environment of the Air Force Academy. 

 

The cadet experience at the Air Force Academy is like no other in the Air Force 

or other university. The best and brightest high school students in the country are 

brought to the Academy from Congressional districts all over the country. But unlike 

their peers on most other campuses, these cadets are restricted to the confines of the 

USAFA grounds virtually 24 hours a day. As they progress through the 4-year program, 
6 

they are allowed increasingly more time off-campus, but Monday - Friday they are 

almost exclusively on the military base. This means that most aspects of their lives--

academic, athletic, military, social, and spiritual--are played out at this Federal facility. 

Hence, the maturation--mental, physical, social, and spiritual--must take place on the 

grounds of this Federal institution. 

 

The most obvious, and perhaps most significant, demographic of USAFA is that, 

like most other undergraduate institutions, the cadets are overwhelmingly in the 18-22 

year old age range. Approximately 1,300 cadets enter USAFA every July. They come 

from across the nation and from a wide variety of home environments. They share a high 

degree of academic achievement (average SAT score is >1,300) and as a group they are 

very athletic. They vary considerably in their maturity and ability to live harmoniously 

and respectfully with peers from different backgrounds. Many come from a home in 

which they have their own bedroom, a computer, sound system, cell phone and 

television. 

At USAFA they share a room with one and perhaps two roommates and there are 

essentially no amenities for the first year. Throughout their Academy career, every 

waking hour is accounted for, their behavior scrutinized and corrected, and the academic 

demands are significant. Even the most disciplined and mature cadet is seriously 

challenged. A majority of the cadets respond positively and flourish, but some have 

difficulty adapting and behave in inappropriate, insensitive ways. In some circumstances, 

their immaturity and frustration in a new environment manifests itself in behavior that is 

not respectful of fellow cadets. This is neither acceptable nor surprising. Over the four 

years of the USAFA program, it is the Academy’s role to assist the cadets in their 

maturity to adulthood and standards of character worthy of officership. 

B. Chronology of Events 

The team discovered or was shown evidence of concern over religious issues that 

date to the mid-1990s. In a 1994 USAFA Report on Respect and Dignity prepared for 

the then Superintendent, a concern was raised regarding “notoriously fundamentalist 

Christian speakers.” Additionally, one faculty member interviewed by the team 

presented a syllabus from 1994-95 that included a Bible verse and a statement that cadets 

would learn “awe and respect for the creator of the universe.” The same individual 

related discussions from the same timeframe when he had expressed concern over what 

he considered proselytizing by the Christian Leadership Ministries (CLM is a part of 

Campus Crusade for Christ that ministers to university faculty worldwide). This 

indicates that the issue of religious influence at USAFA is not new. 

The following chronology records a series of events that began in April 2003 

when the current USAFA leadership arrived and the Agenda for Change efforts began. 

Below are events that, in large part, generated the ongoing discussion about USAFA’s 

religious climate. The associated circumstances and resulting actions are based upon 

available documentation and personal interviews. 
7 

April 2003--The current Commandant arrived at USAFA. Since the previous 

Superintendent had retired and the Senate had not yet confirmed the current one, the 

Commandant was also the acting Superintendent until July 2003. 

During this month, the Commandant released a USAFA-wide e-mail on the 

National Day of Prayer. The team interviewed several cadets, faculty, and staff that felt 

this e-mail was an inappropriate use of position to endorse religion and was exclusionary. 

Two days after the e-mail was sent, at a meeting with faculty, this senior member 

explained his thought process and stated he did not intend to offend or exclude anyone. 

September 2003—The Commandant spoke at the Fourth class (freshmen) 

Protestant Retreat sponsored by USAFA Chaplain Staff. The cadets and faculty the 

review group interviewed stated this senior member introduced the “J for Jesus” hand 

signal and the accompanying “Rocks!” response. Furthermore, cadets reported he later 

used the “J for Jesus” hand signal at a briefing with cadets from various religious 

backgrounds, to include no religious preference. The Christian cadets that were familiar 

with its meaning responded with “Rocks!” Several cadets interviewed said they went 

along with it without knowing its true meaning and then later felt duped when they 

discovered its meaning. On the day following the second “J for Jesus” event, the 

Commandant, realizing on his own that his actions may have been inappropriate in the 

diverse group of cadets, brought the event to the attention of the Superintendent. He was 

counseled by the Superintendent, and subsequently addressed each of the cadet classes on 

the subject of religious respect. 

October 2003--USAFA Culture Change Plan developed, emphasizing a climate 

of respect and culture of candor (Attachment B). 

December 2003--The Christian Leadership Ministries (CLM) purchased 

advertisement space for a Christmas greeting in USAFA’s base newspaper, Academy 

Spirit. The advertisement, signed by over 250 individuals – to include key USAFA 

personnel, included the messages, “We believe that Jesus Christ is the only real hope for 

the world” and “there is salvation in no one else, for there is no other name under heaven 

given among mortals by which we must be saved. – Acts 4:12”. Cadets, faculty, and staff 

talked about the inappropriate, non-inclusive nature of the Christmas greeting endorsed 

by numerous members who were also in their chain of command. It was reported to the 

team that CLM posted virtually identical Christmas greetings in the Academy Spirit every 

year since 1991. Made aware of this situation, the Superintendent expressed concern and 

in turn, CLM did not run the advertisement for the winter holidays in 2004. 

January 2004—Officer Development System (ODS) implemented USAFA-wide. 

ODS provides a holistic framework designed to coordinate and integrate cadet 

developmental activities across their entire four-year experience. Specific objectives are 

developing each cadet’s appreciation that being an officer is a noble way of life, fostering 

a commitment to character-based officership, and developing competencies essential to 

this identity as character-based officer-leader. One of the ODS outcomes is to produce 
8 

officers who appreciate the significance of their own spiritual development, accept the 

beliefs of others, and foster mutual respect and dignity among all individuals. 

 

Formally recognizing this fundamental aspect of human development in its ODS 

is not unique to the Academy; educators have long held that individual moral search is an 

inherent, even vital, component of any robust undergraduate education. Including this 

element in the ODS explicitly recognizes this naturally occurring quest and links it to the 

overall mission of the Academy. ODS recognizes that a spiritually fit leader is one that 

recognizes that many of his or her people find their personal essence and motivation in 

their spiritual core—that, for many, represents a vast reservoir of moral and ethical 

fortitude. The Academy’s ODS does not offer specific solutions to spiritual 

development; rather, it seeks to provide an environment and support structure that 

nurtures every cadet’s individual spiritual nature, inner priorities, or philosophy of life. 

February 2004--“The Passion of The Christ” advertisement flyers/e-mails 

generated perceptions of intolerance. Cadets reported that their peers placed an 

advertisement flyer on all 4,000+ place settings at Mitchell Hall (the cadet dining facility) 

and in other common locations in the cadet area. Cadets felt they were being proselytized 

and pressured to see the movie. Jewish cadets told the team they encountered antiSemitic comments that they believe “The Passion of The Christ” flyer event inspired. 

In response to the flyer incident, the Commandant e-mailed religious respect 

guidance (Attachment C) to his training wing leadership, with instructions to pass to all 

Airmen, including cadets. The Commandant wrote, “because of our mission focus, we 

do not discriminate based on any factor other than the ability to get the job done. With 

that background, I need your help to ensure we have a positive environment for our 

teammates of all faiths, or no faith.” 

Shortly after the flyers were distributed, the Commandant spoke to the cadets 

about religious tolerance during their noon meal. During his remarks the daily 

announcements, set to an automatic timer, continued to be displayed on the dining hall’s 

theater-like projection screens. One announcement that appeared on the screen during his 

talk included a Bible quote. Although coincidental, some cadets saw it as a mixed 

message and evidence of religious intolerance. USAFA has since implemented 

procedures that insert staff oversight into the content and display of such announcements. 

Later that year, the Commandant highlighted religious tolerance in his September 

2004 briefing to freshmen and sophomore cadets and in his December 2004 briefing to 

junior and senior cadets. 

March 2004--The Superintendent e-mailed religious respect guidance 

(Attachment D) to all USAFA members. The Superintendent addressed “The Passion of 

The Christ” advertisement by saying, “The manner in which communication was 

delivered was inappropriate, and I regret any perception of intolerance these actions may 

have created.” USAFA has also implemented procedures that insert staff oversight into 

the dissemination of information to include announcements at meals and proper display 
9 

of flyers. This policy was reemphasized in November 2004, when the Superintendent 

addressed religious issues during his cadet-wide briefing. 

During this month, two surveys were administered to permanent party and cadets. 

The Organizational Culture Survey was developed at the request of the Superintendent as 

part of the Agenda for Change. Comments received from this survey brought senior 

leadership attention to a broader perception of religious bias among permanent party. 

The Class of 2004 Cadet Climate Survey was also administered and identified gaps in 

experiences of Christian relative to non-Christian cadets. Results also showed nonChristian responses as perceiving a less tolerant religious climate at USAFA. For more 

details on these surveys see Section IV. 

May 2004--A cadet identifying himself as an Atheist (now a USAFA graduate) 

identified “several examples of the overtly Christian environment at USAFA that all 

cadets are required to endure regardless of personal religious beliefs that have occurred 

within official capacities.” His complaint was based upon his perception of a “pervasive 

problem” with the religious climate and the “systematic bias” against any cadet that does 

not espouse Christianity. 

Details of his complaint included: the highest levels of leadership at USAFA 

implicitly endorse Christianity. These overt gestures include comments, prayers, songs 

with religious references (e.g., God Bless America) at official (mandatory) ceremonies, 

religious messages at the footers of numerous e-mails, and a squadron mural with a 

religious reference. Additionally, he felt during the Christian season of Lent, the cadet 

wing is forced to adhere to the Catholic diet of no meat on Fridays. During his 2000 

BCT, he was placed in what cadets commonly called “Heathen Flight” and marched back 

to the dorms with other basic cadets who preferred not to attend voluntary evening 

worship services. Furthermore, he requested permission from the USAFA Chaplain Staff 

to form a SPIRE group for Freethinkers (an organized group of Atheists who assemble 

regularly to discuss ethical issues, various cultures and religion and other aspects of life) 

but was denied the opportunity because the proposed group was not “faith based.” 

Additionally, his formal request to use a ‘non-chargeable church pass’ to attend 

Freethinkers of Colorado Springs meetings was denied. In October 2002, he wrote to the 

then USAFA Superintendent to make him aware that he was offended by his “there are 

no Atheists in foxholes" comment. He stated, "this statement is offensive to me, and 

others, because it excludes, and condones this exclusion, of Atheists from defending their 

country and way of life through the armed services." The then Superintendent wrote a 

memo back to the cadet thanking the member for the feedback and apologizing for 

offending the member.

More recently in response, USAFA senior leadership has taken numerous steps to 

improve the religious climate to ensure USAFA creates a positive environment for cadets 

of all faiths, or no faith. The review group’s findings indicate that a lack of clear 

guidance from higher headquarters leadership created a question as to what role religion 

is to play in “official duty” life and continues to cause uncertainty as to what is 

appropriate behavior of commanders, faculty, staff, coaches, and cadets. In addition, the 
10 

group’s findings address dietary religious accommodations at cadet dining facility. The 

Superintendent and Commandant also issued directives to address religious expression in 

e-mails and advertisements for religious-related groups. 

USAFA officials did not endorse the term “Heathen Flight.” The term was used 

during Basic Cadet Training. All basic cadets are afforded the voluntary opportunity to 

attend an evening worship service. The basic cadets that do not elect to attend the 

evening services are returned to their rooms for uninterrupted downtime. This cadetdeveloped term described this group. Although inappropriate, this had been a standing 

‘nickname’ at USAFA according to several cadets and graduates the Review Group 

interviewed. 

In addition, the current USAFA Chaplain Staff stated they would attempt to 

accommodate a Freethinker cadet by explaining to the cadet’s chain of command that 

Atheism is an acknowledged belief system as defined in Air Force Instructions. The 

current Chaplain Staff has not received a recent religious accommodation request from a 

Freethinker cadet. The current staff has supported Atheist groups in SPIRE. For 

example, the 2004 Basic Cadet Training (BCT) SPIRE program included a non-religious 

group. This group personally requested to disband after BCT. 

The complainant raised these issues to the Air Force Inspector General after what 

he perceived to be an inappropriate response on the part of the USAFA Inspector General 

and the Military Equal Opportunity office. In an attempt to address his complaints, the 

Air Force Equal Opportunity office sent a memorandum to the lieutenant in November 

2004. Moreover, the Vice Commandant responded to the lieutenant’s November 2004 email on the progress of USAFA’s religious atmosphere, citing the newly developing 

Religious Respect training (RSVP). 

The team found that in the processing of this case, there were two time gaps. 

These were the result of the change of station of the complainant, and later because of 

medical problems experienced by the individual working the case at the Air Staff. 

USAFA and HQ USAF have taken action to preclude future delays in handling such 

cases. 

 July 2004--USAFA’s then-Senior Staff Chaplain approved a request from a 

USAFA Chaplain to invite Dr. Kristen Leslie and six students from Yale Divinity School 

to visit Basic Cadet Training (BCT) for one week in the summer of 2004. BCT is for 

newly arriving freshmen (called basic cadets) and is held each summer in the cadet area 

and at a remote location on the Academy Reservation called Jack’s Valley. The program 

provides an opportunity for more senior cadets to exercise their leadership skills. The 

faculty and staff refine skills applicable to a deployed field location, which means a busy 

period of counseling and pastoral care by chaplains. 

Dr. Leslie’s expertise was sought to help chaplains understand issues concerning 

the prevention of sexual violence. Divinity School Students were there to observe and to 

obtain practical experience. 
11 

 Upon the completion of BCT, Dr. Leslie and Chaplain Morton combined to author 

a two-page after action memorandum (Attachment E) to provide feedback for the 

USAFA Senior Staff Chaplain. The Yale Divinity School visit memo highlighted 

“consistent specific articulations of Evangelical Christian themes during general 

Protestant services” as a concern. These comments refer to a Protestant service held 

during BCT. Available to cadets were seven distinct religious worship services that 

included two Protestant services, one liturgical and one contemporary. Some of the Yale 

Divinity School team elected to attend the contemporary service. The Chaplain for that 

service is an ordained minister endorsed by the International Church of the Foursquare 

Gospel, an Evangelical, Pentecostal denomination. 

The memorandum alleges that the Chaplain made three statements that they 

considered inappropriate. He confirmed that he made two of the statements (Protestant 

cadets were encouraged to chant the phrase, “This is our chapel and the Lord is our God” 

and were encouraged to “pray for the salvation of fellow BCT members who chose not to 

attend worship”) but denies (as was alleged) exhorting the cadets to tell their classmates 

they would “burn in hell” if they did not comply with a particular doctrine. While these 

comments, if they were made, may be considered offensive or unnecessarily strident by 

some, they are not uncommon expressions of Foursquare Gospel doctrine. It should be 

noted that the freedom to express one’s religious views in a voluntary worship service 

designated for a particular faith group is a condition of endorsement by a chaplain’s 

sponsoring organization. The Review Group interviewed Dr Leslie and she affirmed the 

content of her after-action memorandum. 

At a Graduate Leadership Conference held that same month, the Vice 

Commandant first interacted with a couple of graduates and parents dissatisfied over the 

allegation that Jewish cadets were not being religiously accommodated and highlighted 

an apparent ‘evangelical’ tone at USAFA. 

August 2004--At a follow up meeting, the Superintendent and Senior Staff 

Chaplain met with two representatives from the Graduate Leadership Conference to 

discuss their specific concerns. At that time, the Superintendent identified the Senior 

Staff Chaplain as the “point person” with whom individuals could address their concerns 

about such matters. Roughly 13 people (cadets, recent graduates, faculty, and staff) 

contacted the Senior Staff Chaplain with approximately 50 such allegations, spanning a 

4-year period. 

In turn, the Chaplain developed a Religious Diversity Plan for USAFA based on 

the above allegations and the results of the March 2004 Faculty/Staff Culture Survey and 

the Class of 2004 Climate Survey. Immediately he responded with a proposal for the 

development of an in-depth educational program for every level of Academy life. By the 

end of that same month he presented to USAFA staff a religious diversity plan covering 

the next year of activities. Additionally, the plan called for training on religious diversity 

to be required for all. This included mandatory training for all Special Programs in 

Religious Education (SPIRE) leaders. The expanded SPIRE training included having all 
12 

SPIRE leaders sign a “covenant” (Attachment F) pledging adherence to the rules and 

guidelines taught in the training. These new requirements increased oversight for this 

program by the chaplaincy. Ultimately, the training initiatives led to the RSVP program. 

September 2004--A phased Campaign Plan (Attachment G) was developed by 

the USAFA staff to address religious climate concerns specifically to improve religious 

accommodation and respect. In addition, the Chaplain Staff and Vice Commandant met 

with facilitators of SPIRE and CLM and also hosted roundtable discussions with cadets, 

faculty, and staff. The meeting was specifically called to discuss issues of religious 

respect and proselytizing. Every Protestant SPIRE leader was called in for this two-hour 

discussion. 

Fall of 2004--The Cadet Climate Survey was conducted and included religious 

climate questions. Although the survey data reflected improvements from the 2002 

survey in support of religious freedom and reduced pressure to be involved in religion at 

USAFA, gaps existed between Christian and non-Christian responses on most items with 

non-Christians responding more negatively to questions concerning religious tolerance. 

For more details on this survey see Section IV. 

September-October 2004--A USAFA team processed all religious information 

from climate surveys, focus groups, reports from individuals and started to develop 

religious respect training (later this evolved into the program Respecting the Spiritual 

Values of all People – RSVP). Small group RSVP training for all base personnel began 

in March 2005. In April 2005, the USAFA Board of Visitors was presented with this 

training and also that month, USAFA proposed Phase 2 and 3 follow-on religious respect 

seminars. 

November 2004--The USAFA Head Football Coach displayed a “Team Jesus” 

banner in the locker room. The Coach removed the banner the same day, as soon as the 

Director of Athletics voiced concerns to him. 

November-December 2004--USAFA conducted senior leader (permanent party 

and cadet leadership) focus groups on religious respect designed to raise consciousness 

on the issue, clarify guidance, and outline training. In addition, senior leaders reviewed 

the way forward, to include policy, sub-campaign plan, and lesson plans for upcoming 

base-wide religious respect training. 

December 2004--After discussions with the Superintendent, and in response to 

his request, Dr. Roche, then Secretary of the Air Force, directed the Assistant Secretary 

of the Air Force for Manpower and Reserve Affairs, Mr. Michael Dominguez, to provide 

the Superintendent with assistance assessing religious tolerance at USAFA. Mr. 

Dominguez sent his Deputy Assistant Secretary for Equal Opportunity to the Academy to 

assess the religious climate and evaluate the plan for a positive religious environment. At 

the suggestion of the Air Force Chief of Staff, the team included a Rabbi who is a retired 

Navy Chaplain, a former National Director of Inter-Religious Affairs for the American 

Jewish Committee, and a member of the Council on Foreign Relations. Based upon this 
13 

visit, the team validated that there was evidence of some inter-religious 

insensitivity/intolerance among cadets, and on the part of the permanent party and 

faculty, but that the intolerance did not appear to rise to the level of “rampant 

discrimination” or a “crisis.” Additional findings from this visit are included in Section 

IV and their entire report is at Attachment J. 

 

Also during this month, a CLM representative (who is also a member of the 

Faculty Forum Committee on Diversity) proposed a series of noontime forums to discuss 

religious diversity; its goal was to promote dialogue among faculty and staff and would 

cover all faith groups. One instructor was concerned that “people feel religion is being 

crammed down their throats, their workplace isn’t secular, etc.” He felt, “this episode is 

an example of the problem of religion at this institution,” and alleged that the initiative 

was not properly vetted through the Faculty Forum. Faculty leadership relooked the 

proposal and since RSVP training was scheduled to begin in the near future, the decision 

was made not to hold that specific diversity series at that time. However, in February, a 

similar event was sponsored by CLM and was attended by approximately 50 people 

during lunchtime. 

 

April 2005--Americans United for Separation of Church and State wrote a 14-

page report entitled Religious Coercion and Endorsement of Religion at the United States 

Air Force Academy (Attachment H) and submitted the document to the Secretary of 

Defense. 

The report contained instances of what Americans United alleges were attempts 

by Air Force officials to establish a predominant religion at USAFA and failures by Air 

Force officials to accommodate the religious needs of some cadets. It repeats most of the 

allegations that appeared in other media sources prior to the report date, and advocates 

for the guiding principle of that organization. The Deputy Chief of Staff, Personnel 

responded to Americans United on behalf of the Secretary of the Air Force, ensuring the 

group of the Air Force’s concern and determination to nurture an environment of 

religious respect at USAFA and throughout the Air Force. 

May 2005--Acting Secretary of the Air Force directed a review of USAFA by this 

team. 

June 2005—Acting Secretary of the Air Force asked the National Conference on 

Ministry to Armed Forces (NCMAF) to conduct a site visit to USAFA. 
14 

IV. Review of Documents, Programs, and Focus Groups/Interviews 

A. Introduction

This section contains the Review Group findings pertaining to reviews of 

governing guidance currently in use by USAFA; Special Programs in Religious 

Education (SPIRE); the current religious tolerance training program for faculty, staff and 

cadets, “Respecting the Spiritual Values of All People” (RSVP); the complaint response 

mechanisms at the USAFA; an assessment of the climate at the Academy based on 

USAFA-sponsored surveys; and interviews of faculty, staff and cadets through focus 

groups and one-on-one interviews with the USAFA community by members of the 

Review Group. 

B. Governing Guidance 

Discussion of the role of religion at USAFA must begin by recognizing the 

Constitutional underpinnings of analysis of religion in a governmental context. The First 

Amendment guarantees free exercise of religion and, in addition, prohibits government 

establishment of religion. Also, free exercise necessarily involves the First Amendment’s 

free speech guarantee. Analysis of individual situations requires case-by-case, factspecific application of the language of the Constitution itself. Transforming court cases, 

other statutes, and DoD and Air Force instructions into hard and fast, all-encompassing, 

“bright line” rules is difficult because a single factor may drive a different conclusion. 

An overarching principle with respect to the First Amendment, pertinent to the USAFA 

review, is that the government may not aid one religion, endorse religion in general or 

endorse religions in particular, or favor one religion over another. 

Department of Defense policy favors the rights of military members to observe 

the tenets of their respective religions. Commanders are guided to safeguard freedom of 

expression to the maximum extent possible and to approve requests for accommodation 

of religious practices unless such accommodation will have an adverse impact on military 

readiness, unit cohesion, standards, or discipline. 

The Air Force entrusts commanders with the responsibility to apply higher 

headquarters guidance to the particular facts and distinct situation in their command at 

any one particular time. These commanders rely on advice from their staff, such as staff 

judge advocates and chaplains. As will be apparent from consideration of these legal and 

policy tests, commanders and their staffs must carefully apply the law and policy to 

specific situations, and the particular facts may determine whether a course of conduct is 

appropriate. 

Department of Defense Sources

DoD Directive (DoDD) 1300.17, “Accommodation of Religious Practices within 

the Military Services,” sets forth DoD policy that: 
15 

A basic principle of our nation is free exercise of religion. The 

Department of Defense places a high value on the rights of members of 

the Armed Forces to observe the tenets of their respective religions. It is 

DoD policy that requests for accommodation of religious practices should 

be approved by commanders when accommodation will not have an 

adverse impact on military readiness, unit cohesion, standards, or 

discipline (para 3.1). 

Additionally, para 3.2.4 - Military Departments should include relevant materials 

on religious traditions, practices and policies in the curricula for command. 

Likewise, DoDD 1325.6, “Guidelines for Handling Dissident and Protest 

Activities Among Members of the Armed Services” establishes DoD-wide standards for 

discrimination complaint processing and resolution in order to: 

Promote an environment free from personal, social, or institutional 

barriers that prevent Service members from rising to the highest level of 

responsibility possible. Service members shall be evaluated only on 

individual merit, fitness, and capability. Unlawful discrimination against 

persons or groups based on ... religion ... is contrary to good order and 

discipline and is counterproductive to combat readiness and mission 

accomplishment. Unlawful discrimination shall not be condoned. 

Specifically, para 3.2 – The Service members’ right of expression should be 

preserved to the maximum extent possible, consistent with good order and 

discipline and para 3.3 – No commander should be indifferent to conduct that, if 

allowed to proceed unchecked, would destroy the effectiveness of his or her unit. 

DoDD 1350.2, “Department of Defense Equal Opportunity Program” makes it 

unlawful to discriminate against persons or groups based on ... religion, ...this is 

contrary to good order and discipline and is counterproductive to combat readiness and 

mission accomplishment. 

 

DoD Human Goals Charter, dated July 1998 created an environment that values 

diversity and fosters mutual respect and cooperation among all persons. Additionally, the 

Charter makes military service in the DoD a model of equal opportunity for all regardless 

of religion.... 

Air Force Sources

The Secretary of the Air Force and the Chief of Staff have consistently issued 

memoranda to all Air Force personnel on the topic of discrimination and sexual 

harassment. These memoranda align with the Air Force Core Values that seek to ensure 

dignity and respect for all members of the Air Force family. 
16 

Their direction in this area of religion has been further amplified in the form of 

Air Force Instruction (AFI) 36-2706, “Military Equal Opportunity Program”. In addition 

to delineating the process by which military members can raise complaints of 

discrimination, the AFI also serves as a restatement of the Air Force policy regarding 

discrimination of all types. The AFI was updated on 24 July 04, but it, and the prior 

edition, essentially hold that it is Air Force policy not to condone or tolerate unlawful 

discrimination ...within the Armed Forces or in the civilian workforce. The Air Force 

implements five core elements to assist commanders in measuring MEO program 

effectiveness: policy, communications, education and training, enforcement (complaints) 

and assessments. The Defense Equal Opportunity Council (DEOC) Task Force on 

Discrimination and Sexual Harassment developed these core elements that apply to 

unlawful discrimination and sexual harassment. 

• The Air Force recognizes that all written or verbal communications 

degrading individuals on the basis of ... religion... remain a form 

of unlawful discrimination. 

• It is unlawful to discriminate against an individual or group 

because of their ... religion.... 

In a similar fashion Air Force Instruction (AFI) 36-2707, “Non-Discrimination in 

Programs and Activities Assisted or Conducted by the Department of the Air Force” 

makes applicable the Title VI provisions of the Civil Rights Act of 1964 to the Air Force 

and restates Air Force policy that: 

No person shall be excluded from participation in, denied the benefits of, 

or subjected to discrimination on the basis of ... religion...under any 

program or activity either conducted by the Air Force, or receiving federal 

financial assistance disbursed by the Air Force (para 1.1). 

AFI 36-2707 goes on to emphasize in para 1.3 that the Air Force...provides equal 

opportunity...irrespective of...religion. Para 1.4 specifies that whenever unlawful 

discrimination is found...the Air Force will take immediate action to address inequalities 

or inconsistencies that adversely affect people, and ensure channels are available to air 

complaints without fear of reprisal. 

 

With respect to whether USAFA should establish a policy addressing religious 

practices at USAFA, it was the opinion of the Air Force Judge Advocate General in 2000 

that no policy was required, noting that the issue was complicated by the fact that there 

was a lack of applicable Federal and DoD guidance, and a lack of evidence that USAFA 

leadership was insensitive to the religious needs of the cadets. Additionally the AF/JA 

noted that USAFA leadership was empowered to educate staff and other officials to the 

fact that their actions in the area of religion were not unfettered and were not without 

consequences. 
17 

AFPD 52-1, Chaplain Service, Spiritual health is fundamental to the overall well 

being of Air Force personnel...commanders accommodate the religious needs of their 

personnel to enhance operational readiness and combat effectiveness. 

USAFA Sources

The Superintendent, Commandant of Cadets, Dean of Faculty, and the 

Commandant of the USAFA Preparatory School, all had established policy letters 

regarding respect. Since the team’s visit, the Director of Athletics has one as well 

(Attachment I). 

C. Special Programs in Religious Education (SPIRE)

SPIRE is a multi-faith USAFA Chapel program that exists under the direction of 

the Senior Staff Chaplain to help cadets and cadet candidates grow in their faith. The 

Chaplain Service at USAFA organized it in the 1980s. The program’s self-stated purpose 

is to help cadets become better officers by facilitating their spiritual development and 

promoting Air Force Core Values. SPIRE meets Monday evenings in various locations 

throughout the cadet area in small groups during the Fall and Spring semesters. It also 

meets during Basic Cadet Training. The SPIRE program is currently comprised of 

several distinct ministries: 

CATHOLIC SPIRE

Fellowship of Catholic University Students (FOCUS) 

BUDDHIST SPIRE

JEWISH SPIRE

ORTHODOX SPIRE

PROTESTANT SPIRE

Baptist Student Union 

Campus Crusade for Christ 

Christian Leadership Ministries 

 

Church of Christ 

Church of Jesus Christ of Latter-Day Saints 

CROSStraining (Alliance of Reformed Disciple Making - ARDM) 

 

Fellowship of Christian Athletes 
18 

Liturgical Protestants 

Men of Christ 

The Navigators 

Officers Christian Fellowship 

Seekers 

Sisters With a Purpose (SWAP) 

Solutions 

Youth With A Mission (YWAM) 

 

Approximately 900 cadets participate in this weekly program. The chapel staff 

has only 11 chaplains. Because of the heavy participation, approximately 90 volunteers 

are used in the program. Recognized lay and para-church volunteers primarily lead Bible 

studies and seminars. Seven of the SPIRE leaders are graduates of the Air Force 

Academy, five are ordained ministers with Doctorates and Masters Degrees in Theology, 

ten are members of the faculty at USAFA, and others are retired or active duty Air Force 

Officers. In addition to leading the Monday SPIRE classes and Bible studies, these 

volunteers reportedly spend approximately 160 hours per week in individual counseling, 

personal discipleship and mentoring of cadets. During the Fall 2004, SPIRE leaders 

sponsored 6 weekend retreats with a total cadet attendance of 235. During his welcome 

briefing in September 2004, Chaplain Whittington spoke to all workers and leaders 

concerning the importance of promoting respect for all faiths. 

All leaders and workers are required to sign a SPIRE volunteer work covenant 

(Attachment F) which states that religious sensitivity training is mandatory for all leaders 

and volunteers prior to working with students, and that they must foster tolerance of 

spiritual and religious diversity by promoting respect and cooperation among the entire 

USAFA community. All are required to have a valid proxy card and parking pass. In 

addition, the Senior Staff Chaplain must approve all guest speakers, visitors, religious 

material, special events and advertisements. Leaders and workers are required to report 

all critical issues affecting USAFA welfare and morale to a chaplain. Monthly SPIRE 

breakfast meetings are held to address issues. The USAFA chaplaincy established a 

program in 2004 to provide more oversight of the groups involved in SPIRE. This 

initiative is very appropriate and helps ensure the program remains a positive proponent 

of religious respect that is consistent with our Air Force Core Values. However, 

complaints relayed to the team indicate that guest speakers making presentations at 

SPIRE events may not be sufficiently aware of USAF standards regarding religious 

respect, a situation which USAFA can readily address.
19 

D. Respecting the Spiritual Values of All People (RSVP) Training

RSVP training development began in late 2004 to encourage a high level of 

respect for others’ religious rights and to highlight the USAFA values of fair treatment 

and mutual respect. It was developed in response to religious respect concerns that were 

noted in the Faculty/Staff Spring Survey’s written comments and in the Cadet’s Fall 2004 

Climate Survey. The training was initially designed by chaplains and other Academy 

staff members for the USAFA faculty, staff and cadets and concentrates on Department 

of Defense and Air Force policies on religious tolerance. The Air Force Chief of 

Chaplains then reviewed USAFA’s proposal and streamlined it from 90 minutes to 50 

minutes to better align with the academic schedule of 50-minute class periods and focus 

specifically on the immediate issues. His suggestion was to use this initial block as a 

precursor to additional modules. Additionally, the content of the training was expanded 

to better address the full spectrum of diversity. In the version that began to be given 

USAFA-wide in March 2005, the training provides scenarios depicting religious 

insensitivity—religious slurs, proselytizing, and lack of respect or consideration for 

another’s religious preference. The training team is composed of one member each of the 

Judge Advocate General, Chaplain Service, and Commander groups. It is designed to be 

interactive and generate discussions with attendees. 

The setting for RSVP training is designed for small groups to allow for 

discussion. Originally the training for cadets was set for after lunch; it was later moved 

to the evening after classes. 

Review Group members received RSVP training from the staff and also sat in on 

several staff and cadet sessions. These sessions varied in effectiveness and lacked 

consistency in presentation. Some groups were too large (30+) to allow group 

discussion. Most notably, there was a strong correlation between how well the 

instructor related to the audience and the overall success of the training session. 

Faculty and staff indicated that the training was a good reminder of religious 

insensitivity. Others said that, although well intended, it did not do a good job of 

teaching respect or tolerance. One individual commented having the chaplains design the 

program was like having the fox in the henhouse. 

There was mixed feedback about RSVP from the cadets. Cadets stated it was a 

good reminder about basic lessons. Many applauded the Chaplain Staff for their 

dedicated efforts. However, many cadets did not seem to understand the reason for 

RSVP training and did not think it was necessary or effective. They believe that it 

“talked down” to them and did not give them any tools to deal with the problem. 

Faculty, staff, and cadets voiced several recommendations to make the RSVP 

training more effective. For example, “night classes were ineffective; move the class to 

daytime hours.” Many stated the training would be taken more seriously if senior 

leadership, in particular the Superintendent, opened the course both to demonstrate 

leadership’s commitment and to put the issue in context. A staff member noted that the 
20 

cadets need concrete guidance. The RSVP program coordinators indicated training could 

only go so far without Air Force-wide guidance with regard to religion in the workplace. 

Cadets thought highlighting situations that really happened would be helpful. It was also 

noted that they learned about the religious intolerance concern from the press not the 

leadership. Cadets also indicated more discussion would be valuable and they would 

like to see examples of practical situations they would encounter as cadets. They 

recommended a “check list” and a “tool kit” for how to respond to religious intolerance, 

similar to that which cadets were given for sexual assault. It was recommended that the 

training needed to provide the appropriate tools to deal with the problem and there was 

mention that an outside briefer would be beneficial; they said they are bombarded with 

briefings by the staff and outside briefers were a “breath of fresh air.” They brought up 

training from sexual assault as a positive example. Others requested more cadet 

involvement in the training. Interviewers also heard that a required class on world 

religions and other cultures would be beneficial. Instructors lost the interest of the 

audience when they “read the script.” 

RSVP is a noteworthy first step in educating the USAFA faculty, staff, and cadets 

on religious respect. The chaplains and staff members who designed RSVP spent many 

hours over several months developing, preparing, and executing the training. This was a 

monumental task when taking into consideration the scope of 10 teams training 8,000 

personnel in small groups in the course of a few months. The Superintendent and the 

Senior Staff Chaplain should be commended for initiating RSVP to address this selfidentified problem head-on. However, the RSVP program will need course corrections to 

fully benefit staff and cadets.

Phase II and Phase III of RSVP are currently under consideration. Phase II will 

deal with a series of world religion and culture sessions. Phase III will cover leadership 

and deployment scenarios. (It should be noted that none of those being interviewed were 

aware that the training they were receiving was the first part of a three part series.) Also, 

due to the range and complexity of the subject matter in Phases II and III, the courses 

may take several sessions to cover. 

Note: Cadets, faculty and staff provided very meaningful feedback on RSVP 

training. As indicated, the reviews were mixed. In one faculty focus group a professor 

made an important observation. The faculty, some of whom have been at USAFA for 

many years, are experts in curriculum development. Their courseware goes through at 

least a year of development, rewrites and reviews before it is first presented. The RSVP 

developers felt significant pressure to develop a program quickly, over a few months, and 

it has some of the deficiencies inherent in rapid development and delivery. Regarding 

cadet critiques, a comment by a USAFA graduate was insightful, “In a cadet’s world, free 

time is the coin of the realm. Anything that diminishes it, regardless of its merit, will be 

met with great cynicism.” That said, putting the training in context for the audience and 

providing a more interactive presentation will enhance the training. 
21 

E. Internal Control Mechanisms

Several avenues are available for cadets, faculty, and staff to register complaints 

regarding any aspect of the USAFA environment. Along with the chain of command and 

chaplains, USAFA personnel may direct their concerns to the Inspector General (IG), the 

Military Equal Opportunity (MEO) office, Equal Employment Opportunity (EEO) office 

and the Cadet Counseling Center. 

Since January 2002, four IG complaints have been filed that are related to 

religious issues; two were from anonymous complainants and one each from a cadet and 

parent. Two of these four are currently open and under investigation; the other two, one 

alleging “too much religion in the military” and one alleging “an inappropriate response 

on the part of the USAFA Inspector General and the Military Equal Opportunity office” 

have been closed. Since the IG Complaints Resolution Program may not be used for 

matters normally addressed through other established grievance or appeal channels, the 

IG also referred the religious respect concerns of an additional two cadets and one active 

duty member to USAFA Military Equal Opportunity (MEO) office. 

The MEO office serves both cadets and permanent party for unlawful 

discrimination issues to include religious respect. The office received two informal 

complaints regarding religious discrimination since January 2002. The first complaint 

included a concern that religious beliefs were a motivator in a hiring selection process. 

This was addressed by a commander but was not substantiated. The complainant was 

satisfied with the results. A second informal complaint is currently under the review of a 

commander. The cadet complainant had the option to have MEO conduct a formal 

complaint clarification but instead elected to have his chain of command address the 

issue. 

 In addition, commanders communicated with MEO on three occasions when 

alleged unlawful discrimination issues were worked within their unit; all cases reached 

resolution. Two of these cases involved religious messages in e-mails, in which both 

cadets were briefed on proper procedures and religious respect. The third case included 

an alleged religious comment on prayer and God, in which the alleged offender denies 

the statement and the complainant is no longer available for follow-up, having been 

discharged for reasons not related to this incident. 

 

Finally, two cadets and three active duty members contacted MEO for assistance 

related to religion, to include definition of unlawful discrimination, information on how 

to file an MEO complaint and other MEO procedural questions. 

 

The EEO office is the primary complaint mechanism for civilian employees. 

Since January 2002, three EEO complaints have been processed to resolution. These 

included two cases of religion being a factor for denial of official union time and one 
22 

conflict with religion and duty hours. All three cases were resolved to the satisfaction of 

the complainants. 

There is also a cadet PEER (Personal Ethics and Education Representative) 

program that serves as an informal means of raising concerns and venting frustrations. It 

appears the majority of cadets are confident in this program and use it substantially. 

Started in August 2004, PEER is a consolidation of previously existing cadet human 

relation programs, used to provide cadets a one-stop peer support related to human 

relations and sexual assault. The program has at least one PEER per cadet squadron and 

there is one overall PEER for the cadet wing. These representatives are selected through 

an application process and a selection board. PEER cadets work for the Vice 

Commandant and are trained as the primary referral agents for cadets to route concerns to 

the most appropriate helping agency, thus serving as a guide and facilitator for the cadet 

population. They serve as a conduit to direct cadets toward official reporting channels 

and helping agencies. 

Since its inception, PEERs have received five contacts related to religious climate 

concerns; all were investigated and resolved except one that is still in review. Prior to the 

PEER program cadets filled similar positions as Human Relations Education Officers 

(HREOs) and received six contacts related to religious climate concerns. Such reasons 

for PEER/HREO contact included: inappropriate religious comments, advertisements for 

prayer meetings/religious-related organizations, religious-natured e-mails (to include, 

Bible verses in e-mail footers), and a request for assistance in developing a religious 

accommodation request/plan. PEERS also submit human relations complaints to the 

human relations noncommissioned officer at Academy Counseling Center. 

The Academy Counseling Center is available 7 days a week, 24 hours a day and 

functions in a similar manner to counseling centers at civilian colleges and universities. 

The International Association of Counseling Services has accredited the center since 

1993. The primary goal of the center is to enhance the well-being and personal 

effectiveness of USAFA cadets as they strive to become Air Force officers. The 

counseling center is organized into four divisions: Counseling Services, Human 

Relations, Sexual Assault Services and Substance Abuse Prevention Education. Clinical 

staff members include licensed mental health providers from a variety of disciplines. 

Unlawful discrimination concerns are brought to the Center’s Defense Equal 

Opportunity Management Institute-certified noncommissioned officer (NCO) either 

directly from cadets or through the PEERs. This NCO is trained to the same degree as all 

other Air Force Equal Opportunity technicians. Cadets have reported similar concerns to 

the Center as to their PEERs. The unlawful discrimination complaints that cannot be 

resolved at the Center are forwarded to USAFA MEO. 

Overall, the Academy seems to have appropriate internal control mechanisms in 

place and abides by standard policy. They appear to suffice in terms of services and 

counseling availability. However, it is less clear that cadets and staff are aware of these 

avenues and know how to use them when needed. Coordination and communication 
23 

between these helping agencies seem to be lacking. There were indications that some of 

the offices located outside of the cadet area were not readily accessible to cadets. The 

recent decision to open a MEO office in the vicinity of the cadet terrazzo is a positive 

step taken by Academy leadership. In addition, cadets’ knowledge of the various 

programs was limited. 

F. Academy Surveys

An integral part of the USAFA internal control program is their extensive use of 

surveys to assess and improve the climate and culture of the Academy. The primary 

mechanisms for obtaining data are the Cadet Social Climate Survey and the 

Organizational Culture Survey. 

Prior to 2003--The team reviewed Cadet Social Climate Survey data from 1995 

to the present. These surveys addressed major areas to include, race, discrimination, 

gender, reprisal, intercollegiate athletics, and religion. From 1995 - 2002, religion was 

consistently the first and second most positively rated climate area. From an analytical 

methodology standpoint, the 1995 - 2002 survey data on religion was analyzed and 

presented at the factor level (meaning the main focus was on the score assigned to the 

overall religious climate, not on individual questions). On a 1 - 6 scale, with 1 equating 

to "poor" and 6 equating to "good", the average overall score for religious climate during 

this period was 4.43 with a high of 4.6 to a low of 4.0. Although there were some 

indications of perceived religious discrimination (cadet on cadet), the focus appeared to 

be on the overall positive religious climate score since there were several areas rated 

lower than religious climate. The 2003 survey did not include religious questions and the 

2004 survey was the first time USAFA analyzed and presented religion data at the item 

(question-by-question) level, with particular attention given to the gap between Christian 

and other faith groups' responses. The 2003 and 2004 cadet surveys are addressed below 

in greater detail. 

 

Fall 2003--This Cadet Social Climate Survey did not ask religious questions, at 

the direction of the then Secretary of the Air Force, Dr Roche. The focus was specifically 

on sexual harassment/assault. 

Spring 2004--USAFA conducted a comprehensive survey of faculty and staff. 

This survey, the Organizational Culture Survey, was developed at the request of the 

Superintendent as part of the Agenda for Change. Overall, the survey indicated the 

culture climate at USAFA was positive. Respondents, however, were also encouraged to 

provide written comments to the survey. It was these additional comments that brought 

the concern about religious tolerance at USAFA to the attention of the Academy’s 

leadership and was a major impetus for the RSVP Training. The findings were 

highlighted to the USAFA Board of Visitors and the General Officer Steering Committee 

in November 2004. 
24 

Overall findings included: 

• Christians surveyed were more likely than other groups to affirm that 

USAFA fosters religious freedom and people at USAFA respect nonChristian views. 

• Faculty reported the least favorable perceptions of religious 

tolerance/respect at USAFA. 

• Although respondents agreed that religious respect is desirable, fewer 

believe that religious tolerance/respect exists at USAFA. 

Also during this same time frame a Cadet Social Climate Survey was 

administered to a small segment of the graduating class (approximately 13% of the cadet 

wing) and included religious-related items. It did highlight some concerns. However, 

statistically, USAFA correctly placed more emphasis on the later results from the Aug 04 

survey that included all cadets and therefore was a better representative sample. 

Fall 2004-- A Cadet Social Climate Survey administered in the Fall semester 

addressed a broader range of subjects. It included items on race, gender, athletics, 

discrimination, alcohol, sexual harassment, sexual assault, sexual assault reporting, 

confidence in leadership, safety, tolerance, and specific items on religious climate, along 

with warrior identity and culture change. The Defense Manpower Data Center and the 

Air Force Personnel Center validated the survey. 

Although the survey results reflect there had been improvements in support of 

religious freedom, and there is reduced pressure to be involved in religion at USAFA, 

gaps exist between Christian and non-Christian responses on most items with nonChristians responding more negatively to questions concerning religious tolerance. 

30% of non-Christian cadets responding believe that Christian cadets are given 

preferential treatment. Additionally, over 50% of all cadets responding agree that 

religious slurs/comments/jokes are used. 

G. Focus Groups

The comments, suggestions and views obtained from the Focus Groups were very 

diverse. These views vary from those who feel oppressed by the environment to those 

who find nothing wrong to those who are unaware. Some Jewish cadets and several 

Faculty and Staff had particularly strong feelings about the religious climate at USAFA. 

Various members of all focus groups expressed concerns that have been noted throughout 

the report. Potential instances of misconduct reported to Review Group members were 

referred to persons with the authority to deal with them. 

Sample demographics from the Fall 2004 Cadet Climate Survey indicate the cadet 

wing as: Atheist (2.3%), Buddhist (.9%), Christian (85.2%), Hindu (.3%), Islamic (.4%), 

Jewish (1.5%), No religious preference (7.3%), and Other (2%). 
25 

First and Second Class Jewish Cadets (10 cadets)

Although they said that overall there is a positive environment at the USAFA, 

members of this group perceive problems with religious tolerance among fellow cadets, 

some faculty, some leadership, and several athletic department coaches. The cumulative 

effect of continually being exposed to a Christian atmosphere, the failure of staff to 

adequately address religious accommodation issues, the lack of a standard set of rules for 

pass privileges and religious accommodations, various egregious actions of a few 

faculty/staff members, and inappropriate behavior toward non-Christians by individual 

cadets have made the environment insensitive to their needs and at times coercive. Some 

cadets felt that an ignorance of different religions is often the root of insensitive remarks 

made by a select few cadets. They also had issue with prayer before mandatory events 

and felt that they were predominantly Christian-based. The group commented on the 

inappropriateness of an email regarding the National Day of Prayer that was sent to all 

cadets by the Commandant of Cadets. They also felt that the RSVP training was “way 

off target” and too remedial and glossy for people who really need it. 

Most of these ten cadets were not “practicing” Jews and therefore suggested we 

contact specific cadets who are very active in the USAFA Jewish community. The two 

cadets we spoke with at a later time had significant issues they felt needed to be 

addressed by USAFA. In particular, they felt the administrative procedures in place and 

the conflicts with scheduled training, made it difficult for cadets of minority faiths to 

obtain permission to attend Sabbath and non-Sunday religious worship services. In 

addition, the cadet dining facility does not meet the dietary needs of all cadets. Both 

cadets experienced proselytizing by certain members of the faculty, staff, and athletic 

department, and religious comments/slurs made by other cadets. Specific instances have 

been referred to the proper authority. They expressed their belief that the environment 

has improved over the past year. The Jewish cadets greatly appreciate the efforts of the 

current Superintendent to improve the religious climate at USAFA. 

Third and Fourth Class Jewish Cadets (8 cadets)

This focus group provided similar inputs to the First and Second Class Jewish 

Cadets listed above. The following comments were representative of the group: “Most 

of the problems here are with fellow cadets; some cadets are ignorant of religious groups 

other than Christianity.” 

“There are continuous instances of religious intolerance but few of these reflect 

actual malicious intent.” “Freedom of religion does not exist if you are not a Christian.” 

“Even though there is a cumbersome pass procedure to attend religious services, AOC 

and cadet leadership pressure you to make “the right choice” and choose duty over 

religion.” “Although the current Rabbi is a very nice man, the Jewish program does not 

meet my needs.” Some cadets in this group felt that USAFA does not do a good job of 

accommodating certain faiths and often schedules major military events during Jewish 

holidays/holy days. Most felt that things have gotten better over the past year and 

religious/cultural demeaning jokes and slurs have become less frequent. 
26 

First and Second Class ‘Other’ Cadets (9 cadets)

This group included cadets with no religious preference, Hindu, Buddhist, 

Atheist, and Agnostic. The tone of the conversation was markedly different than some of 

the other groups. Religion was not a major part of these cadets’ lives. Consequently, 

they do not feel strongly about the issue and don’t see it as a problem that affects them. 

They felt that the environment at USAFA is very accepting and tolerant of various 

religions. The term “Heathen Flight” of BCT, although clearly inappropriate, was 

considered more of a joke to those interviewed in this group and something they proudly 

called themselves. They enjoyed being part of the “Heathen Flight” because they said 

they were able to go back to their rooms to rest versus going to church. They said it was 

a term similar to several others used by cadets in BCT to distinguish between different 

groups (i.e. Heathen Flight, Sick-Lame & Lazy Flight, etc.). Some cadets were adamant 

that prayer before mandatory events (i.e. Dining Ins, Pinnacle, etc.) was inappropriate. 

Several also experienced “discomfort” with the athletic department and its pro-Christian 

stance. These cadets did not like the RSVP training because they said they already know 

what was being taught. 

Third and Fourth Class ‘Other’ Cadets (7 cadets)

These “Other” cadets (those who claim to be either a religion not listed above, no 

religion, Atheist, or Agnostic) spoke highly of the religious climate at USAFA. None of 

them had experienced nor observed any inappropriate actions by fellow classmates, 

faculty, or staff. They found the “Heathen Flight” name amusing, not demeaning. They 

felt the level of attention to issues of religious respect at USAFA is overblown. 

First and Second Class Protestant Cadets (10 cadets)

These cadets had comments on both sides of the spectrum with regard to the 

religious climate at USAFA. Some had experienced proselytizing by fellow cadets and 

faculty. They were not comfortable with “The Passion of the Christ” flyers being spread 

all over campus, but felt the problem was addressed quickly by the leadership. Some 

were also uncomfortable with the Commandant of Cadets’ email on the National Day of 

Prayer. They also felt that religious accommodation is not standard among squadrons 

and scheduling of major events should be more accommodating to religions other than 

Christian. Some cadets perceived that USAFA is now too “politically correct” and cadets 

of Christian faith are now being discriminated against, while others believe a clear 

“separation of Church and State” is needed. 

Third and Fourth Class Protestant Cadets (10 cadets)

This group didn’t feel there were many issues of concern. They felt it is the 

responsibility of the individual to speak out when/if offended. In addition, they felt that 

the resentment that exists when someone misses a mandatory training event is not just 

applicable to religious activities but tied to other reasons (i.e. athletics, debate team, etc.). 
27 

First and Second Class Catholic Cadets (9 cadets)

The overall, unanimous, position of these cadets was clear: free exercise of 

religion is not a problem at USAF. Senior leadership, staff, faculty, and members of the 

cadet wing at USAFA are viewed as religious, but never use their positions to force or 

coerce others. Two cadets did remain after the others departed to share their story of a 

particular coach. They felt the coach “crossed the line” by requiring team members to 

participate in a team prayer after each game/practice. 

Third and Fourth Class Catholic Cadets (10 cadets)

These cadets were surprised that this is an issue at USAFA and think the media 

has made it an issue. None of these cadets had specific instances of religious intolerance 

or bias. 

First and Second Class Mixed Faith Cadets (8 cadets)

The group consensus was that this issue seems to be extremely overstated. Only 

two of the cadets have ever witnessed some semblance of religious intolerance, albeit 

minor in their opinion. They did mention they were witness to some minor jokes and 

light humor but nothing that would be considered disparaging. One cadet mentioned that 

his Jewish roommate had difficulty getting out of a function to attend Passover. Another 

said the Academy appears to be "worried about offending anyone." Several cadets 

mentioned that prayers given before official functions may cause some of the "minority" 

cadets to feel uncomfortable. Most indicated RSVP training did not seem very effective. 

First and Second Class Mixed Faith Cadets (7 cadets)

Again, the group consensus was that there is respect for all cadets at USAFA, 

regardless of religion. A few of the cadets did address the "The Passion of the Christ" 

flyers that were distributed. They said this was no different than other flyers 

disseminated for various events. One of the cadets, a Mormon, said that he and his 

roommate, who is Catholic, often spoke about their religions as a way to educate each 

other. They and other cadets talk casually about their religious differences and he 

couldn't recall anyone ever being offended. A few of the cadets did, however, indicate 

that there had been a few occasions in which leadership didn't seem to be aware of some 

of the "other religions and beliefs" throughout USAFA. All of these cadets felt RSVP 

was a "waste of time" and had no value. Finally, the consensus among this group was 

that they are happy to be at the Academy and they wish someone would “set the media 

straight”. Some of the cadets had no idea about the religious issue until they read it in 

the paper. 
28 

Naval Academy Midshipmen (5)

All are finishing a one-year exchange tour at the Air Force Academy--two 

Catholic, two Protestant, and one Jewish. The midshipmen are extremely pleased with 

the religious climate at the Air Force Academy. None had witnessed or heard of any 

religious intolerance or religious disrespect among cadets. When asked about differences 

between the Naval Academy and the Air Force Academy, they each expressed 

disappointment that USAFA does not have a chaplain prayer at the noon meal. 

Air Officers Commanding (8 AOCs)

The AOCs felt that religious accommodation requests are not a ‘religious’ issue, 

but a ‘team spirit’ issue. Anyone absent, for any reason, is perceived as lacking team 

spirit. They also felt that the pendulum has swung too far and now open discussion is 

discouraged among cadets. They do not know what is right in regards to religious talk 

and feel that USAFA has the dilemma of being a government property but also the 

cadets’ home. They felt strongly that more guidance is needed. 

Academy Military Trainers (9 AMTs)

This group does not feel that they have overarching, standardized guidance on 

religious accommodation and their experience with accommodating cadets varied greatly. 

One example includes a Jewish cadet who was allowed to have a refrigerator in his room 

for his kosher food, unlike the cadets of other faiths in his squadron. However, since 

Mitchell Hall does not have kosher food, this cadet would march to the dining facility 

with his squadron, drink some water, and then go back to his room to eat his own food. 

Almost all AMTs shared a “duty over religion” attitude. 

Permanent Professor and some senior Faculty/Dept Heads (22 faculty)

This group was positive and believed there is not an overall negative or system 

problem with respect to religious tolerance at USAFA. They are not surprised, however, 

that there were incidents of religious intolerance because the cadets are 18-22 years old, 

come from all walks of life, and are conservative in nature. They also discussed some 

scheduling problems and feel the burden is unfairly placed on cadets of minority religions 

to ask for religious accommodation consideration. A librarian said he has witnessed 

SPIRE facilitators with chapel-sponsored access/proxy badges using the library to 

counsel cadets on religious matters. With regard to cadet accommodations, they agreed 

that most of the decisions are made at the squadron level and are not standard. Finally, 

they all concurred that the Commandant of Cadets is overly criticized in the press, and 

that he is the best leader/commandant they have seen in many years. Group members 

believed RSVP was valuable, but suffered from rushed development and inconsistent 

quality of presentation. 
29 

Other Faculty Groups (34 total)

Faculty 1 (Military)

All members of the group felt that their own faith life and that of their students 

was well respected and that no religious intolerance characterized their USAFA 

experience. The group was completely comfortable with their religious freedoms. 

Insensitive remarks about religion are rare and may be just mistakes made by very young 

people or poor choice of words. 

Faculty 2 (Military/Civilian)

The non-Christian members of this group indicated that Senior Leadership, to a 

person, made them feel like ‘evil people’ if they were not one of the Christians. A few 

acknowledged that some of the leadership is ‘extraordinarily aggressive’ in the 

expression of their faith. Some members of minority faiths also revealed they suspected 

they had been non-selected for faculty advancement and military promotion; however, no 

specifics were given. The Christian faculty members of this group expressed their belief 

that Christianity is a ‘proselytizing religion’ and they have a right, even duty, to do so. 

Faculty 3 (Military/Civilian)

The Professors said they have no specific USAFA or department instruction on 

what is permitted/not permitted to say in the classroom as it relates to religion. One 

member recalls supporting a cadets’ religious accommodation request by rescheduling an 

exam. Others asked, “Do we have to give up religious freedom to be in the military?” 

Finally, several pointed to a Senior Leader as the one who pushed the religion issue from 

‘sub-threshold’ to over the ‘threshold’. 

Faculty 4 (Military/Civilian)

This group was also very diverse on their views of religious tolerance and where 

religion fits in the classroom. One faculty member felt strongly that USAFA is a 

religiously biased environment and very coercive. Another said his wife would not talk 

about her faith in the spouses’ group for fear of hurting her husband’s career. One 

member stated he did not feel there are any tolerance issues and expressed that discussing 

his faith in the classroom is part of being role model for the cadets. There were some 

however, that expressed comments such as “religion does not belong in the classroom.” 

This appeared to be a general consensus that, in their opinion, there ought not be any 

expressed religious preferences by faculty in the classroom, as these preferences have the 

potential to lead to implied favoritism or opportunities for students who share those 

preferences to receive special treatment. They all concurred that the religious climate 

varies between departments. RSVP needs to give tools to those being trained. 
30 

Staff (Staff/Air Base Wing) (11 total)

This group was made up of members from the Air Base Wing, hospital, cadet clinic, and 

faculty department. They haven’t seen the issues the media is reporting. They all 

concurred that small incidents are taken out of context and people are ‘oversensitive’. 

Overall, this group felt there weren’t too many issues and USAFA is a relatively good 

environment. They did, however, feel there may be some scheduling and 

accommodation issues. One member found one of the faculty departments an ‘uneasy’ 

environment for non-believers. 

Athletic Department (Coaches) (16 total)

Coaches claimed that there was no problem with religious respect at USAFA. 

They suggested that the instances in the newspapers were blown out of proportion, and 

that this review teams’ visit was unnecessary. 

As a group the coaches were asking for guidelines. One coach said he leads his 

team in prayer and invokes Jesus’ name regularly. Another coach said he doesn’t want to 

insult anyone, so he holds a minute of silent prayer before each game, and he says 

“Amen” after an appropriate time. The next coach said he doesn’t include any religion 

into his program at any point. One coach was convinced it was DoD’s policy that teams 

could not pray, while another thought that is was USAFA’s policy. Yet another felt it 

wasn’t policy because prayer with the team was authorized. Collectively, they asked: 

“Can we pray with our teams? Can we pray to God? Can we pray to Jesus?” 

Coaches said the SPIRE people from off campus are all around there. An 

Athletes in Action representative reportedly came to one coach and asked him to 

encourage his team members to join his Christian worship group. Coaches said the 

Fellowship of Christian Athletes is still active at USAFA, and they felt that it was “good 

for the kids.” However, several coaches said they were uncomfortable with a senior 

leader pushing the National Day of Prayer breakfast and saying something like “All good 

officers will be there”, and one coach questioned whether it was appropriate to advertise 

and promote attendance at Bible studies over the PA system. 

One coach stated the focus should be on individual assertiveness to be a good 

officer, offering that if someone is offended they need to learn to deal with it on their 

own. One coach stated that football is too visible. If he had put the banner up in his 

locker room it would have been appropriate, and no one would have cared. 

H. One-on-One Interviews

The team had several open sessions in which members of the USAFA community 

were invited to attend and speak in confidence to a member of the Review Group. 
31 

Cadets’ Summary

Numerous cadets met with review group members over the three-day period. 

Many cadets were worried about the “pendulum swing” that may restrict religion and 

SPIRE activities. “Reverse religious discrimination is rampant and evangelical 

Christians are under constant attack and scrutiny solely on account of their beliefs.” They 

felt that SPIRE, Bible study, and chapel are all essential to BCT and to the development 

of leaders. SPIRE helped strengthen their faith and helped them get through the tough 

times. They expressed their belief that the media is blowing the issue out of proportion 

and USAFA is letting the media drive their decisions. They didn’t know religious respect 

was an issue before they saw it in the media. Cadets are now very careful of what they 

say and are wary of open discussion. One cadet said “The Air Force I signed up for 

didn’t say I had to leave my religion at the door—it’s part of who I am.” 

Others noted religious accommodation problems. In addition, the cadets do not 

like RSVP at night and believe it is not necessary. Cadets need practical guidance to use 

in their day-to-day lives as cadets. Many were confused over the rationale for the RSVP 

training. 

Faculty/Staff/Perm Party Summary

Several permanent party members from various mission elements took advantage 

of the one-on-one personal interviews with Review Group members. The insights 

obtained reflected diverse views of the religious climate at USAFA. Some expressed 

their belief that there is no religious coercion or prejudice at the Academy. They 

suggested that USAFA is like any other university in that critical thinking needs to be 

taught and the classroom is the place to discuss differing views while respecting the 

views of others. A few faculty members expressed their concern that the current climate 

of insecurity stifles free academic discourse. In addition, character building is important 

at USAFA and some felt cadets need to understand the importance of spiritual beliefs. 

“This is the Armed Forces where members put their lives on the line-faith takes on even 

greater significance during times of conflict and we need to make room for faith”. 

Alternatively, some members felt strongly that the religious intolerance problems at 

USAFA were very real, and had been there for a long time. “I came here from the line of 

the Air Force, and was immediately stuck by how religion permeated this place like 

nothing I had ever seen before in the Air Force”. One faculty member felt that 

“Academic Freedom” was used as a “Get Out of Jail Free” card to say things that are 

otherwise totally unacceptable in a military environment. They feel the problem is not 

with the cadets but with some of the leadership and various faculty members. One 

faculty member stated that in her opinion the entire faculty is too homogeneous. Others 

suggested that the behavior was with the majority of the faculty. Some perceived that 

selection of staff/leadership is based on religion. This perception also extended to the 

admission of cadets, “The kids we are bringing in here now are not a reflection of 

America. Whether they realize it or not, people of religion are selecting kids of religion 

to fill USAFA.” 
32 

Finally, a few faculty/staff stated they had seen similar activities in the larger Air 

Force, suggesting that at every rank people quietly acquiesce to demonstrative religious 

behavior of those more senior to them. 

I. USAFA’s Initial Consolidation of Concerns

The team specifically reviewed allegations described in the media as the “55 

complaints.” These allegations, though not specifically in the team’s charter, set the 

stage for its review. The Senior Staff Chaplain discussed USAFA’s collection and 

consolidation of these allegations of religious insensitivity in an effort to properly scope 

the extent of perceived religious bias. In August 2004, the Chaplain, as the project lead, 

initiated this collection of religious respect incidents from the entire USAFA community. 

He eventually compiled approximately 50 such concerns from 13 different people. The 

incidents reportedly occurred over the previous four years. USAFA used this list to serve 

as data points as they mapped out their diversity plan and corresponding religious respect 

training. In addition, USAFA leadership dealt with the allegations that reflected 

specifics. Others were very general or reflected impressions of the individuals reporting 

and did not provide sufficient information for individual follow-up action. 

The general areas of these concerns were: inappropriate comments, 

accommodations, lack of sensitivity to minority religions, proselytizing/religious 

expression, prayer, and Christian guest speakers. USAFA has made adjustments in their 

programs and practices in several of these areas to address concerns and the remaining 

items are being addressed in the Review Group’s recommendations for further action. 

J. December 2004 Headquarters Air Force Assessment 

 In December 2004, after discussions with the Superintendent, and in response to 

his request, Dr. James Roche, then Secretary of the Air Force, directed SAF/MR, Mr. 

Michael Dominguez, to provide assistance with assessing religious tolerance at USAFA. 

Mr. Dominguez sent his Deputy Assistant Secretary for Equal Opportunity to USAFA to 

assess the religious climate and evaluate the plan for a positive religious environment. At 

the suggestion of the Air Force Chief of Staff, the team included a Rabbi who is a retired 

Navy Chaplain, a former National Director of Interreligious Affairs for the American 

Jewish Committee, and a member of the Council on Foreign Relations. This visit 

spanned a day and a half on the ground at USAFA, and consisted of discussions with the 

Superintendent and Vice Commandant, the chaplains, the Center for Character 

Development, and a group of selected cadets representing a variety of religious and nonreligious based traditions. In addition, they reviewed and critiqued an early version of 

Respecting the Spiritual Values of all People (RSVP) lesson plan. Upon their return the 

team met with Dr. Roche and Mr. Dominguez and provided their assessment verbally. 

On 25 January 2005, the team submitted a written report of their findings 

(Attachment J) that included the following findings: 
33 

The team did not find indications of a crisis in regard to religious 

insensitivity/intolerance nor did it note any consistent signs of rampant discrimination on 

the basis of religion. They reported that USAFA leadership had initiated a good first 

response, and was actively working to improve the religious climate. The RSVP training 

being developed was described as “very good”, but the team suggested greater integration 

with other initiatives such as gender sensitivity, equal opportunity, core values, and 

character development. In addition, cadets felt that if a problem were brought to any 

USAFA chaplain, that chaplain would do his or her best to help. 

The team, however, observed manifestations that resulted from a lack of 

understanding concerning broader issues of respect for individual rights and a lack of 

clarity of a vision that embraces spiritual development as core to Air Force values and 

mission. Cadets they interviewed felt there were some problems, especially in terms of 

being “bombarded” with religious information and/or “invitations”/solicitations over the 

email, and sometimes by flyers. The movie “The Passion of the Christ” was cited as one 

example. Some cadets felt religious quotes included as part of the signature block on 

emails contributed to the problem of “religious bombardment”, or military sponsored 

“evangelization.” There was also a feeling that some cadets and permanent party did not 

understand policies or sensitivities. 

Chaplains expressed some fear that cadets think that the first course of action after 

encountering insensitivity is to make a report (following the concept of reporting sexual 

abuse or assault), rather than attempt to work things out. Cadets also expressed some fear 

that respect for the spiritual component of leadership has been reduced to lip service. 

Their perception was that much of the Academy leadership would prefer to avoid issues 

of spirituality, in part because of fears of being accused of offending those who do not 

see themselves as religious. Finally, cadets indicated there were some problems with 

comments by faculty. For example, when one student indicated that his or her religion 

took a stand against evolution, the instructor ridiculed such a belief. 

Based upon this visit, the team validated that there was evidence of some interreligious insensitivity/intolerance among cadets, and on the part of permanent party, 

including faculty; however, the team did not note any consistent signs of rampant 

discrimination on the basis of religion. 

K. June 2005 National Conference on Ministry to the Armed Forces (NCMAF) 

Assessment 

The NCMAF team conducted an independent review at the request of the Acting 

Secretary of the Air Force. The team was comprised of five members from the various 

faith groups: Evangelical Friends Church (Quaker), Christian Reformed Church in North 

America, The Orthodox Church In America, Jewish, and The Church of Jesus Christ of 

Latter-Day Saints. They conducted a site visit at USAFA on 7-8 June 2005 and met with 

approximately 180 cadets and permanent party. 
34 

The following areas were reviewed: 

• Concerns regarding incidents of alleged over-reaching religious influence by 

senior leadership, faculty, and staff 

• Effectiveness of RSVP training 

• First Amendment, Character development, and Ethics 

• SPIRE Program 

• Adequacy of the religious program 

Their findings were very similar to those of the Review Group. They provided 11 

recommendations and highlighted certain areas for improvement. Their complete report 

is at Attachment K. It is noteworthy that the NCMAF team highlighted that USAFA 

senior leaders, faculty, and staff appeared exhausted by the relentless media attention, 

especially since the Academy had already identified the concerns and were addressing 

them. The NCMAF team identified a concern over the danger of moving the pendulum 

too far in the opposite direction. The team pointed out that along with looking into the 

isolated incidents, Academy leaders have attempted to identify root causes and to design 

corrective and preventive measures. The team also emphasized that there are potentially 

polarizing views regarding the role of religion in our nation’s public square and at 

USAFA and highlighted the need for and importance of clear guidance. Non-Christian 

cadets told them that the problem at USAFA is accommodation, not necessarily 

intolerance. Scheduling conflicts between mandatory training and religious activities 

were a major concern they heard about. The NCMAF Team Lead stated that solutions to 

the religious respect issue would require continued insightful leadership, openness, 

respect, and goodwill. 
35 

V. Findings and Recommendations 

This section contains events and observations that the HQ USAF team found 

important to identify in assessing the overall religious climate of USAFA. In all, the 

team had nine findings of which one, termed “Climate,” contains six events and 

behaviors. For all findings any corrective action already taken by USAFA is also 

described. In addition, seven specific instances of potential misconduct by individuals 

were referred to appropriate authorities for further command review and action. 

Recommendations are included at the end of this section. 

A. Findings 

1. Perception of Religious Intolerance: USAFA identified through surveys of both 

permanent party and cadets that there was a perception of religious intolerance among 

some at the Academy. The USAFA leadership continues to be very aggressive in using 

anonymous surveys to assess the academy climate across a range of issues including 

religious respect. 

2. Guidance: There is Department of Defense, Air Force, and USAFA policy guidance 

regarding religious accommodation, prohibitions against religious discrimination, 

preserving service members’ right of expression, etc. Senior USAFA leaders have 

distributed statements supporting the rights of individuals to hold religious beliefs or to 

have none, and stating the importance of respecting this right for all people. However, 

there is no guidance indicating the specific appropriate parameters for either the free 

exercise or the establishment of religion. This need for guidance also applies to contract 

personnel (e.g., coaches). Similarly, there are no relevant materials on culture and 

religion in the curriculum for new Air Force commanders, as required by DoD 

instruction. This lack of guidance is a source of concern and frustration for leadership, 

staff, faculty, and cadets at USAFA. 

The Academy’s Staff Judge Advocate requested specific advice on prayer from 

the HQ USAF Judge Advocate General’s office in 2000. In turn, they provided guidance 

with regard to specific instances of prayer and advised against adopting a general policy 

concerning prayer. In December 2004, the current Superintendent requested that a more 

specific policy be provided that would be applicable to USAFA and the greater Air 

Force. 

3. Training: USAFA has initiated a new program entitled Respecting Spiritual Values of 

All People (RSVP), Phase I, as part of their effort to enhance a climate of respect for 

individuals of different belief systems. The program is not adequate, by itself, to address 

the issue of religious respect for the entire USAFA community, but it is a significant 

initial effort in developing a comprehensive program. 

4. Climate: Cadets, faculty and staff expressed concern that there was inappropriate bias 

toward a predominant religion and a perception of intolerance of other views. The team 

found this concern among the cadet wing, in the 34th Training Wing, Faculty, and the 
36 

Athletic Department, but it was not pervasive within each of those areas. Virtually all 

individuals contacted agreed that USAFA’s religious climate has steadily improved under 

the leadership of the current Superintendent. Concerns expressed to the team consistently 

focused on the following six occurrences and behaviors: 

a. Senior faculty and staff members, in efforts that may have been wellintentioned, have made public expressions of faith that some faculty, staff and cadets 

believed to be inappropriately influential or coercive. As a result of this, some military 

and civilian faculty expressed concern about the impact of religious affiliation on their 

personal career advancement. Some cadets expressed objections to what they perceived 

to be mandatory prayers at official functions and in sports locker rooms. Additionally, 

some faculty members and coaches consider it their duty to profess their faith and discuss 

this issue in their classrooms in furtherance of developing cadets’ spirituality. 

These incidents reflect the need for guidance and training regarding proper 

conduct and established parameters. 

b. Some cadets used printed flyers and the Mitchell Hall (cadet dining room) 

public announcement system to advertise religious events in ways that other cadets found 

offensive. 

 Following the inappropriate use of flyers and the public announcement system, it 

was determined that there was inadequate guidance for some aspects of the cadet-led 

meal formation and for appropriate means of advertisement of events. New guidance is 

now in effect. 

c. Some cadets have experienced religious slurs and disparaging remarks made 

by other cadets. 

USAFA leadership (and in one case, the HQ USAF team) conducted follow-up on 

specific occurrences of religious slurs and disparaging remarks, when there was sufficient 

information provided. The experience of academy leadership and that of the HQ USAF 

team was that cadets clearly want this behavior to stop, but they are not inclined to 

provide the information needed to pursue the complaint. Individuals interviewed, and 

focus groups of minority religion cadets, indicate the environment has improved over the 

last two years. 

d. Some faculty and staff members paid for their names to be included on a 

holiday announcement in the Academy Spirit (a base newspaper published by a 

commercial firm for USAFA), which had an overtly Christian message (December 2003). 

A similar advertisement has been published every year since 1991, when the sponsoring 

group received a USAFA/JA opinion indicating it would be permissible if only the names 

of faculty and staff, without rank or position, were listed. This advertisement was viewed 

as inappropriate and one cadet cited it in his complaint about religious issues at USAFA. 
37 

The Superintendent expressed concern and CLM did not publish the 

advertisement during the 2004 winter holiday season. 

e. The Commandant led cadets at a voluntary Christian retreat in a Christian 

“challenge and response” cheer regarding Jesus. He later led the same cheer in a larger 

group of cadets of mixed faiths. Some cadets regarded this as inappropriate. 

The senior leader who conducted the “challenge and response” was counseled by 

the Superintendent and in turn addressed and explained his actions to each cadet class. 

f. The USAFA football coach placed a banner on the wall with an overtly 

Christian message. Some cadets, faculty and staff found the action inappropriate. 

Upon learning about the banner hung by the football coach, the Director of 

Athletics directed it be removed and it was taken down that same day. Both the Director 

and the Superintendent have had discussions with the coach regarding appropriate 

expressions of faith by individuals in positions of authority. 

5. Internal Control Mechanisms: USAFA leadership uses surveys, complaint referral 

processes, and day-to-day feedback to address cadet and staff complaints and assess 

trends. The team found these mechanisms functioning but not thoroughly integrated. It is 

not clear that cadets understand when or how to use the various mechanisms. 

6. Accommodation: When building the USAFA cadet schedule, USAFA does not give 

appropriate consideration to the diverse religious practices of cadets of minority faiths. 

Hence, the full burden of initiating the accommodation process falls upon the cadets, 

heightening their sense that individuals not of the Christian faith are not being treated 

fairly. 

In April 2005, the Academy assigned a chaplain to work with the Training Wing 

Scheduling Office to advise on religious observances as schedules are being developed. 

Additionally, beginning in March 2005, plans were being developed to provide 

accommodation to cadets requiring excusal from military training events in the coming 

academic year. 

7. Standardized Processes: The process of granting religious accommodation requests to 

cadets is delegated to the cadet squadron level and is not standardized across the 

academy. 

 USAFA will implement an improved, standardized policy for granting 

accommodation measures prior to the start of the 2005-2006 academic year. 

8. Kosher Meals: These meals are not always available to Jewish cadets and other 

minority cadets desiring them as part of their religious observance. 

 
38 

As a result of the team’s visit, USAFA is developing options to provide kosher 

meals on a more consistent basis. 

9. SPIRE Leaders’ Access: The USAFA Chaplain Staff sponsors a Special Program in 

Religious Education on Monday evenings for 18 groups (CLM meets at another time), 

including Christian, Jewish, Buddhist and other belief systems. More than 900 cadets 

(almost 25% of the cadet wing) participate voluntarily in this program. Volunteers that 

lead the groups must obtain security badges but a concern exists about their access to 

cadets; unfettered access could be perceived as institutional bias towards religious 

groups. 

Since the summer of 2004, volunteers who participate in these programs receive 

training and sign a “covenant” that provides guidelines for appropriate conduct of the 

program. This level of oversight was added as part of the efforts of the newly assigned 

Senior Staff Chaplain. 

B. Recommendations

The findings of the HQ USAF team and their recommendations that follow have 

application to the Total Force in the same manner lessons-learned are applied throughout 

the entire Air Force. The Review Group recommends: 

1. Headquarters USAF develop policy guidance for Air Force commanders and 

supervisors regarding religious expression. This guidance should provide relevant 

considerations for a commander who must exercise discretion in the area of religious 

expression based on the specific facts and particular situation present in his or her 

command. This guidance should instruct commanders to ensure compliance to stated 

standards by contract employees and include review of contracts upon renewal. 

2. Headquarters, USAF reemphasize policy guidance for commanders and staff judge 

advocates regarding appropriate endorsement and advertising of unofficial or affiliated 

groups of which Air Force members may be a part. 

3. Headquarters, USAF reemphasize policy guidance for commanders and chaplains 

regarding oversight of unofficial or affiliated groups that operate on Air Force bases and 

have access to Air Force personnel. USAFA needs to review access parameters for 

SPIRE-affiliated groups, specifying that access outside the weekly SPIRE period must be 

at the specific request of the cadet and limited to specific time periods and facilities. 

4. Headquarters, USAF reemphasize the requirement for all commanders to address 

issues of religious accommodation up front, when planning, scheduling, and preparing 

operations, in concert with the accomplishment of their assigned mission. 

Accommodations involving diet and scheduling flexibility for religious observances 

merit special attention. 

5. Headquarters, USAF develop policy guidance that integrates the requirements for 
39 

cultural awareness and respect across the learning continuum, as they apply to Airmen 

operating in Air Force units at home as well as during air and space expeditionary 

operations abroad. 

6. Headquarters, USAF direct USAFA to develop an integrated plan, as part of its overall 

character development program, that promotes increased awareness of and respect for 

diverse cultures and beliefs in every part of its academic, military, and athletic 

curriculum. Such cadet learning should include instruction in cadets’ rights to hold 

religious beliefs (or none), how to respectfully express rejection of others’ beliefs, and 

instruction in constitutional safeguards and policy provisions covering freedom of 

religious expression and non-establishment. The Air Staff provide oversight and 

implementing guidance for USAFA to form an interfaith, ecumenical team, including the 

use of subject matter experts from outside the Department of Defense, in developing this 

program. 

7 . USAFA provide for HQ USAF review its plan for ensuring a single focal point for 

cadets, as well as permanent party, who have issues regarding the human relations 

climate (e.g., a single clearing house, ombudsman, etc., for determining what statutorily 

established complaint mechanism is appropriate for handling the issue). 

8. USAFA continue its robust use of internal controls to assess climate and implement 

corrective action. Additionally, coordination among the associated agencies should be 

reviewed to improve cross-flow of information to command. Increased integration and 

awareness will enhance leadership’s ability to identify and react to trends. HQ USAF 

should ensure that these efforts are consistent with ongoing assessments of the larger Air 

Force. 

9. USAFA provide continuing opportunities for all cadets to learn about, discuss, and 

debate issues of religion and spirituality in a developmental setting with peers and role 

models, as such discussion is essential to character development. 
40 

VI. Conclusion 

USAFA is aggressively addressing a subject that continues to be widely debated 

in the public arena. The root of this problem is not overt religious discrimination, but a 

failure to fully accommodate all members’ needs and a lack of awareness over where the 

line is drawn between permissible and impermissible expression of beliefs. USAFA must 

continue to provide cadets with the opportunity to develop their character, whether in the 

context of their religious faith or otherwise. The Air Force’s Core Values, founded on 

respect, provide the guide to ensuring all religious activities at USAFA reflect adherence 

to the First Amendment prohibition against denying the free exercise of religion or 

establishing a religion.