Subpanel II Report
Fifth Draft

XII-1

# XII. ORGANIZATION OF THE DEFENSE DEPARTMENT

## Introduction

In the present and for the foreseeable future we may have to support at the same time two armies, two navies, two air forces, and two military programs: one set of forces being designed to provide the ready deterrent essential to maintain security and promote national policy today, the other (and considerably different) set of forces being developed to meet the drastically altered conditions of the oncoming future. We are certain that these dual requirements cannot be met without some fundamental changes both in organization and in philosophy within the Department of Defense. The sharp increases foreseeable during the next ten-to-fifteen years in technological complexity, in the cost of maintaining first-line weapons systems, and in the interdependence between foreign policy and our military programs all enhance the difficulties of our problem.

We believe that any defense organization should provide an efficient system for relating the planning and operation of our military programs both to the other components of our national security program and to our dynamic and shifting weapons technology. As a corollary, this implies the ability to make timely decisions on the development and subsequent procurement of new weapons, to develop tactical doctrines consistent both with weaponry and with national policy, and to integrate both weapons and doctrine into the ready military forces with the least disruption of their efficiency. Moreover, the ideal defense establishment should provide for adjusting service roles, missions, and organizations to match changing requirements and situations and should enable us to react instantaneously and with utmost efficiency against an enemy military attack. Consistent with

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the foregoing, the defense establishment must enable us to achieve maximum
efficiency: to relate optimum defense capabilities as closely as possible to
dollar expenditures. And, finally, our establishment must serve to uphold the
confidence of the American people in the competence of their military establis-
ment and to maintain the morale and esprit de corps of the fighting men in the
various arms and services.

Major Criticisms of the Present Defense Establishment

Many steps toward the betterment of Defense Department organization
along the lines indicated above have been taken over the last ten years. Rat*
than being merely critical of what has not been done, we should note the great
progress that has been made to meet situations not reasonably foreseen in 194
in 1949, or even at the time of the last major change in 1953. However, we
recognize that there has also been -- and is -- considerable expressed public
dissatisfaction with the organization and operation of the Department of Defe
We are also aware of the criticisms of waste, of extravagance and of indecis*
which have from time to time been leveled at the Department. Whether or not
fully justified, this state of public opinion is serious because of the demands
made on the American people for the financial support of Defense Department
operations and for service in the military establishment. There is great need
for public confidence in the planning and functioning of the Defense Departme
and for a general climate of trust in the way the Department is executing its
mission. However, it is difficult to develop such trust as long as the service
themselves give every evidence of a deep-rooted rivalry which is enhanced,
rather than ameliorated, by existing Defense Department organization.

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The root of the trouble, in our opinion, lies in the division of functions among the several services established by the Key West Agreement of 1948, and largely unchanged since. Given the circumstances, it was perhaps necessary at the time to agree that the primary mission of each service was to defeat its enemy counterpart. However, as a result each service has not only developed its own strategy for the accomplishment of its mission, but has sought control of all the forces, elements and weapons systems it believed essential to the prosecution of its task. Therefore, each service has pushed weapons development without sufficient regard for programs of other services and has sought to obtain control of as many different weapons as possible, both for the reasons given above and as a form of insurance against cuts in its mission, its forces and its appropriations. This not only leads to the proliferation of partially overlapping, partially inconsistent weapons systems but also to occasional hiatuses, where one service is reluctant to cut back on forces for the attainment of its primary mission in order to provide support which another service needs for the fulfillment of its mission, as has been the case with air and sea lift for the Army.

A division of functions among the services makes sense only if the functions in fact represent distinguishable strategic missions. The racing changes in weapons systems, in military organization and tactics, in inter-governmental relations and in our external security arrangements all tend to strain the traditional service missions, roles and relationships toward material change. As, increasingly, the present dividing lines between service missions tend to become further blurred, we will need adjustments based upon the nearly universal suitability of various weapons systems to carry out assigned tasks.

["universal suitability of various weapons systems to carry out assigned tasks, tend to become further blurred, we will need adjustments based upon the need for change. \"As, increasingly, the present dividing lines between service missions within the traditional areas of operations, roles and relationships toward materi-\ngovernmental relations and information on external security arrangements all tend to change in weapons systems, in military organization and technique, in military functions in fact represent distinguishable strategic missions. The reading of this report makes sense only if this the Army.", "for the fulfillment of its mission, as has been the case with all and see it for itself, primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which another service needs. Diffuse, where one service is relevant to cut back on forces for the attainment of its primary mission, and see it for itself, of its primary mission in order to provide support which

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Subpanel II Report

Fifth Draft

If competition, waste and confusion are to be minimized, and service roles and missions adjusted to provide the truly integrated forces needed to implement the flexible strategic concept previously discussed in this report, there will be an increasing necessity for hard decisions whose successful resolution and implementation will require the most thoughtful advice of professional military men. This is most difficult of accomplishment when the institutions and individuals who must provide the advice are directly affected by the resultant decision. The fact that the officials comprising the Joint Chiefs Staff are, with the exception of the Chairman, also claimants for and administrators of important components of the military machine means that they do not stand above service rivalries but are spokesmen for them. As former Secretary of Defense Lovett has said, "....it is, I think, a tribute to the qualities of the individuals involved...." that the system has worked as well as it has. Nevertheless, foreseeable developments over the next 10-15 years seem certain to demand a far more effective system of planning for our military security.

To the largely military difficulties outlined above must be added other whose essence is at least partially civilian. In the comparatively rapid transitions of the last ten years the defense organization has acquired a layering of a proliferation of staffs and sub-staffs. The Joint Chiefs of Staff have been overloaded with minor and operational matters which could be better handled by other staff arrangements. There is basis for a charge of overcivilianization, which has certainly led to the proliferation and complications of staffing and has contributed to an assumption of line authority by civilian Assistant Secretaries over activities with whose supervision they are charged by the compart-

[y]

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mented titles of their particular offices. This is not unification but fragmenta-
tion, and does not really enhance civilian control. There is in fact a grave
question about the effectiveness of staff coordination on the Department of De-
fense level, in spite of the very strong and desirable civilian executive leader-
ship that has been given at top levels of the Department.

The current organizational situation is bound to have an adverse impact
on the morale of professional military personnel, whose responsibility runs be-
yond the relatively brief tenure of civilian officials. Our concept of government
for very good reasons insists that military authority be subordinate to civilian
authority, but for equally good reasons it does not release its military pro-
fessionals from ultimate responsibility for the country's military security. The
military professional must accommodate himself to a situation in which his ne-
civilian boss may take office on the basis of public promises of sweeping
changes in policy. Civilian officials, elected and appointed, should similarly
accommodate themselves to the fact that if competent military professionalism
is to survive it must be permitted an organization which affords it some protec-
tion.

These problems in organizational relationships, and consequent blurries
and dispersion of foci of command and responsibility, certainly weaken the
organization, may contribute to waste, and obviously make less likely timely
and effective action in periods of crisis. Although other factors, including bo-
service differences and budgetary limitations, have also contributed to our
difficulties in the field of research and development, the organizational trends:
previously outlined must also bear a share of the blame. Whatever the cause,

Subpanel II Report

Fifth Draft

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it is difficult to feel happy over a system in which it takes nine years to go
from design to initial production of a heavy bomber, or in which, as one high
defense official testified, we are going into production on an obsolescent
missile simply because we have spent so much money developing it that we want
a return on our investment. Obviously, there is considerable difficulty in pre-
venting new technological ideas and developments from living out their useful
lives in the darkness of Pentagon administrative machinery.

From the above it may seem that the Department of Defense is indeed in
a bad way. However, the difficulties which have been described should not
obscure the fact that the United States had, in a period of rapid political and
technological change, somehow found the means, the weapons and the organiza-
tion needed to attain its current objectives. The real questions are, first,
whether our accomplishments have always been carried out as quickly, as
effectively, and as economically as they should have been, and, second,
whether our organization is adequate to meet the demands of the future. By any
consideration of the criteria advanced previously, our defense organization must
be judged capable of improvement. We are encouraged to believe in the possi-
bility of needed adjustment by the developments in both organizational and
philosophical approaches in the last ten years. Historical perspective and the
difficulties of clearly foreseeing the future incline us against suggesting sudden
and radical changes or ones which might bind the organization for long into the
future. Rather we suggest acceptance of a philosophy of evolutionary change
within which we feel that we can reasonably define certain lines of development
which will better enable the Department of Defense to meet the needs of the
present and to keep pace with the changing future.

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# Recommended Changes in Department of Defense Organization

## The Office of the Secretary of Defense

In the first place, the Secretary of Defense should be provided with an integrated staff of professional military and civilian people to coordinate the operations of the Department of Defense. At the same time the Secretary's powers should be reconcentrated in a smaller number of top civilian aids by a reduction in the number of Assistant Secretaries and a broadening of the authorship of the remainder. (Similar steps could well be taken in the military department. This should result in more effective civilian control, while arresting the trend toward overlayering of the professional military and toward drawing sharper and sharper lines between civilian and military officials.

Consistent with strengthening of the Secretarial staff, there should be increased attention paid to the planning and coordination functions of the Office of the Secretary of Defense and to interdepartmental relationships in the formulation of national security policy. More emphasis on, and more cohesion among military strategy, technology and weapons systems, and politico-military policies are needed. Present instructions for more direct contact between civilian officials and military staffs should be implemented and expanded to provide greater opportunities for the interchange of information, ideas and policy proposals at all staff levels and at all stages of development.

Personnel policies should put increased emphasis on the training and education of the high-caliber professional military people upon whom successful effort at all staff levels primarily depends. The development of qualified personnel for Joint Staff and DoD assignments could be furthered by the detail of

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outstanding officers from one service to another, by war college and civilian
graduate school education in appropriate areas, and through the development of
career patterns which emphasize service in higher headquarters and on joint and
combined staffs. We applaud the recent action of the Secretary of Defense in
placing emphasis on experience outside of a single service prior to promotion of
individuals to the rank of general or flag officer, and consider that this policy
should be continued and similar actions encouraged. Furthermore, we consider
that the Secretary of Defense should participate to a greater degree in the formu-
lation of personnel policies affecting the higher ranks of the services and should
have close control over the assignments and promotions of those who have mani-
fested their capability for extra-service assignments requiring broad experience
and non-partisan judgment. In the not far distant future there will probably be
material surpluses and deficiencies in various categories of officer personnel
arising from technological changes such as the shift from piloted aircraft to non-
piloted missiles. This consideration alone dictates a shift in personnel policies
toward ready transfer among the services and toward the ear-marking of those who
are most qualified for repetitive assignments to the Joint Staff and to OSD.

While major economies in the operation of the Defense Department can
probably be attained only through far-reaching organizational changes, or better
rationalization of conflicting strategic concepts, or both, this does not mean
that further operational economies cannot be made. Since its inception, the
Office of the Secretary of Defense has made considerable progress in this direc-
tion; however, the control of the Secretary over essential elements of program
formulation and program execution in each of the three services needs to be

["For information and program execution in each of the five services needs to be\ncontinued and program execution in each of the five services needs to be\ncontinued. However, the control of the Secretary over essential elements of program\noperation and program execution in each of the five services needs to be\ncontinued. Since its inception, the program of the Secretary of Defense has been\nconsolidated. It is the basic principle of the program that the program of the Secretary of Defense is to be consolidated. It is the basic principle of the program that the program of the Secretary of Defense

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exercised more effectively. We feel that the Secretary of Defense should undertake a continual review of and provide continual guidance on such matters as tables of organization and equipment, standards for proficiency, and equipment utilization rates, which have such an important impact on resources. More importantly, the rapid changes in weapons systems and security requirements also indicate the necessity for frequent review of service roles, missions and combat assignments -- obviously a difficult task.

## The Future of the Joint Chiefs of Staff

Concerning the Joint Chiefs of Staff, we feel that, considering the machinery through which they must work, the men in this organization have carried out the tasks given them amazingly well. We believe, however, that the JCS should evolve into a planning organization dealing with strategy and broad policy, as distinguished from a committee whose members also exercise management functions and attempt to cope with the detailed operational problems of a particular service. Such matters should be dealt with by the Secretaries of the three services, with the advice of their service chiefs, or by the Secretary of Defense with the advice of his staff. The divorce of the Joint Chiefs of Staff from service responsibilities and their establishment as the "Operations Division" of the Secretary of Defense should be accompanied by measures to give to the unified and specified commanders (such as the Commander-in-Chief, Europe; commanding general of the Continental Air Defense Command, etc.) increased authority and responsibility for the preparation and presentation of military requirements, as is already the case with respect to military aid programs. Equally means that the Joint Staff should have the freedom to develop strategic con-

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cepts, recommend broad policy guidance, and plan for the most efficient use of
available military resources without being hamstrung by the necessity for obtain-
ing service consent at every step of the process. In line with the foregoing, the
Chairman of the Joint Chiefs of Staff should clearly be recognized as the chief
strategic adviser of the Secretary of Defense (and, through him, the President)
and as the director of that portion of the staff of the Secretary of Defense
processing military policy and planning matters for decision by the Secretary.

The Case for a Moderate Approach to Changes in Defense Department
Organization

The proposals that we here suggest may not seem drastic enough to some
To these critics we point out that organizational changes have to be made within
dimensions of the art of the possible in our particular democracy and our
existent military organization. There will be others who will view the proposals
as overly drastic and as being revolutionary rather than evolutionary. To these
critics we point out that by default, due to lack of adequate organizational
arrangements, the control of programming, of many vital operations of the De-
partment of Defense, of national military policy itself, now rests materially in
budgetary and comptroller channels and will almost certainly, unless remedial
action along the lines suggested is taken, soon rest primarily in these channels.

The American people, becoming as they are increasingly sensitive to the
great cost of our security policy, are bound to be similarly sensitive to criti-
cisms of security organization and implications that money and resources are
being wasted thereby. The obvious result will be refusal to provide important
and even vital increments of resources in manpower and appropriations.

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As a final point, it is all too apparent that our competitors in this arms race have moved forward more rapidly than estimated ten years ago or even five years ago. Furthermore, current estimates indicate their ability to develop new weapons systems, adapt new programs, adjust to new policies, more rapidly than we have thus far been able to do. This comparative speed we feel is due in part to a flexibility and adaptability in organization and administration which has not traditionally been ours. We are certain that in the organization of the Department of Defense, in the relationship of its components, and in the making of national security policy and programs generally, we must become much more flexible and more streamlined. The suggestions advanced will, we hope, contribute materially to this aim.

As a final point, if it is all too apparent that our competitors in this area
have moved forward more rapidly than estimated ten years ago or even five
years ago. Furthermore, current estimates indicate their ability to develop new
weapons systems, adapt new programs, adjust to new policies, more rapidly
than we have thus far been able to do. This comparative speed we feel is due
in part to a flexibility and adaptability in organization and administration which
has not traditionally been ours. We are certain that in the organization of the
Department of Defense, in the relationship of its components, and in the work
of national security policy and programs generally, we must become much more
flexible and more streamlined. The suggestions advanced will, we hope, con-
tribute materially to this aim.

Fifth Draft
Submitted II Report