The Next Two Links to the Force of the Future
What Building the Force of
the Future Is About
As Delivered by Secretary of Defense
Ash Carter, The Pentagon Courtyard, Washington, D.C., June 09, 2016.
Source : U.S. Departent of Defense.
Good morning, everyone! Thanks for coming out here today,
although it’s not hard to do on a beautiful day like this.
I asked you all to join us up here on the stage today to talk
about the next two links we’re building to what I call the Force of the Future –
our Defense Department’s all-volunteer force, the military and civilians, that
will help lead and defend our country in the years and generations to come.
All of us who work here at the Pentagon are fortunate to be
part of what is today the finest fighting force the world has ever known. But as
we all know, generations change, and technologies change, and labor markets
change. And that’s why one of my responsibilities now – and a job for all of us
in the years ahead – is to make sure that amid all this change, DoD continues to
recruit, develop, and retain the most talented men and women America has to
offer – men and women like you. That’s what building the Force of the Future is
And it’s something we absolutely have to do. It’s critical we
do so to meet and overcome the five challenges we face today – from China,
Russia, North Korea, Iran, and terrorism, especially ISIL – and to be flexible
and agile in preparing for the future, for unknown dangers we can’t anticipate
today. And it’s also critical we do so in keeping with the military’s character
as a profession of arms, and the distinctive nature of public service – because
mission effectiveness and the security of this country always have to be job
one, for all of us.
Now, as many of you know, these aren’t the first two links
we’ve built in recent months – in fact, they’re the third and the fourth.
Link number 1, which I announced in November, focused on
building and expanding on-ramps and off-ramps for talent to flow between DoD and
the technology sector in both directions – such as creating the Defense Digital
Service, expanding the Secretary of Defense Corporate Fellows program, making
the Career Intermissions Program permanent, and bringing in
Entrepreneurs-in-Residence for a year or two at a time. It also focused on
modernizing our talent management systems – creating an Office of People
Analytics, resuming exit surveys, and launching LinkedIn-style pilot programs to
help match servicemembers with their next assignments.
And the second link, which I announced in January, focused on
family retention for military personnel – promoting that critical objective by
helping them balance their commitments to the force and their families by
expanding maternity and paternity leave, extending childcare hours on bases, and
giving families the possibility of some geographic flexibility in return for
additional service commitments.
We’ve taken other actions too, that will help benefit our
future force. We opened all combat positions to women who meet our standards, to
expand our access to what is, after all, half of America’s population for our
all-volunteer force. And we’re working with Congress to improve joint duty
requirements under Goldwater-Nichols – making them less rigid, and giving top
personnel more flexibility to take on command assignments and other
opportunities to broaden and deepen their careers.
With every announcement related to the Force of the Future,
I’ve said there’d be more to come, because competing for good people – military
and civilian – is a critical part of our military edge, and everyone should
understand this need and my commitment to it.
So today I’m pleased to unveil the next
two links to the Force of the Future that we’ve been working on. One is
for DoD’s uniformed military side, particularly focused on giving the services
room to make commonsense improvements to the officer promotion system. And the
other is for DoD’s civilian workforce. Both are critical, and I wanted to
announce them together – even if it meant giving a longer speech – because, as
many of you know, whether you’re military or civilian, here at DoD it’s one
team, one fight. And in the end, the goal is the same: this is about our people,
and building an effective force that will continue to defend our country and
make a better world for our children.
Before I get into the details, I want to thank everyone who
contributed to this over the last several months – many of them here today.
There’s DoD’s Personnel & Readiness chief, Peter Levine – Peter, thanks for
taking on this new role, and to you and everyone in P&R for helping see these
initiatives through. To the Services’ “Ones” and Manpower & Reserve Affairs
offices – thank you, all, for working so closely with Peter and his team on all
these initiatives. And I particularly want to thank the Service Secretaries and
Service Chiefs, here today, for their advice – Secretary Fanning, Secretary
Mabus, Undersecretary Disbrow; General Milley, Admiral Richardson, General
Neller, Lieutenant General Lengyel: thanks to all of you for joining us this
morning, and for your contributions to building the Force of the Future. We
couldn’t have done it without you.
With that, let me start with what we’re doing on the military
side, to ensure our services have the tools they need to always ensure we’re
promoting, retaining, and bringing in the best possible officers to lead our
Many of you are familiar with ‘up-or-out,’ the term for our
system. This system serves us very well, but that doesn’t mean it can’t be
It’s important to recall how and why this system came about.
After the Revolutionary War, American military officers were promoted based on
seniority alone, almost without exception – junior officers would wait for as
long as 20 years to fill so-called “dead men’s shoes,” and only then was there
possibility for promotion.
That began to change 100 years ago this fall, when the Navy,
and later the Marine Corps, worked with Congress to completely overhaul its
officer promotion system – establishing promotion boards, minimum time-in-grade
requirements, and maximum age limits. This was the genesis of ‘up-or-out’: an
officer had to be good enough to advance, or they had to retire. And after the
Army and Air Force adopted the same system following World War II, it created
the professional officer corps that’s led our military for decades since, and
made it the envy of the world.
All this progress was positive. It ensured a fresh flow of
talent, so that our officer corps would continually revitalize and hone its
warfighting effectiveness in an ever-changing world.
And that’s exactly what we’re trying to do today. And this
brings me to a key principle: ‘up-or-out’ isn’t broken – in fact, it’s an
essential and highly successful system – but it’s also not perfect. Most of the
time, and for most of our people, it works well. The problem, however, is that
DoD can’t take a one-size-fits-all approach. And ‘most of the time’ isn’t good
enough for the Force of the Future.
The ‘up-or-out’ system is currently governed by the
36-year-old Defense Officer Personnel Management Act, or DOPMA, that in some
cases proves too rigid. It can limit the ability of our services to achieve the
right force mix they need – especially at a time when we’re seeking to promote a
wider range of experience, perspective, and training to strengthen the overall
effectiveness of our force. That’s because sometimes DOPMA forces officers to
make tradeoffs between strong but overly-specified paths to promotion, and paths
that might offer greater career depth or breadth. It can offer little incentive
for officers to focus, specialize, or try something different from a traditional
career path, even if doing so would benefit DoD and make our force more
effective. And for individual officers themselves, at times we’ve seen that
people who deviate from such strict career paths may be penalized by not being
selected for promotion – that’s not always the case, but it does happen. This
hinders our force’s ability to take advantage of the rich value that a full
range of opportunities provides.
This rigidity is compounded when promotion eligibility is
determined by year group – a management mindset that doesn’t really account for
the possibility of an overall stronger force comprised of officers with
differing experience and training, or of officers who might gain their
experiences and training along slightly different timelines. In some ways it can
seem like a crowded escalator, especially in the junior ranks – with everyone
moving up together, and any attempt to get off, even temporarily, can make it
really hard to get back on.
Such rigidity can be constraining to the military services
and the Service Chiefs in their effort to attract and retain the best force
possible. It’s also difficult for those who want to open their aperture for
professional growth and thereby help us make a better force.
Sometimes this system has led us to lose good people. People
with skills we need, but who see better opportunities elsewhere, in places that
are less rigid, slow-moving, and bureaucratic, and more agile, creative, and
merit-based. And as future generations increasingly value merit and flexibility,
it’s more than just a matter of retention – it’s going to be a matter of
We can and must fix these problems.
That’s why we’re seeking to make four landmark changes to DOPMA. Together, these
stand to be the most consequential changes to our officer promotion system in
over 30 years, if not more. And they’ll improve that hundred-year-old system and
help bring it into the 21st century – all with the clear intent of improving the
effectiveness of our force, and maintaining its character as a profession of
The first change we’re seeking – and this idea by the way is
a credit to Admiral Richardson and his Navy team – is for the services to be
able to adjust, based on performance, the so-called lineal numbers of their
officer corps. This will help them better balance merit and seniority in the
Right now, when a promotion board selects a certain number of
officers to be promoted, they don’t all move up at the same time. DOPMA limits
how many personnel are allowed for each rank, so officers selected for promotion
have to wait for an opening in the rank above them before they can actually get
promoted. Then, when there is an opening, the order in which they move up is
determined by lineal numbers, which are assigned to officers based on seniority
– that is, based on the date of commissioning or when they were last promoted.
With naval references to lineal numbers dating back at least to 1800, this is
one of the last vestiges of the pre-World War I, promotion-by-seniority system.
And sometimes that’s to our force’s disadvantage.
It can lead to a particular assignment going to the most
senior person on the list, even when someone a bit lower down would be more
effective in the job. It also means that higher-performing officers who get
selected for promotion a year or two ahead of theirs peers often have to wait in
line behind everyone else more senior – sometimes for a year or more – which
prevents putting their talent to use as soon as it may be needed. And if they
get fed up waiting and decide to leave the military for some other opportunity,
that hurts us too – it’s counterproductive.
So that’s why we’re seeking to change DOPMA to let the
services adjust lineal numbers based on superior performance. It’s a key part of
good talent management. And it’ll help us recognize and incentivize the very
best performers – not to mention make promotion even more merit-based than it
The second change we’re seeking, to ensure our force doesn’t
lose or penalize talented officers who wish to broaden their careers, is the
authority for the services to be able to temporarily defer when those officers
are considered for promotion.
DOPMA has generated very specific timelines for when officers
come up for promotion. Everyone gets considered when the system says they’ve had
their current rank for enough time, and they’re considered alongside and in
competition with their chronological peers – usually in groups based on when
they were commissioned. To be competitive, everyone is expected to have gained
the requisite experiences and knowledge to advance and succeed in their career
field, and in the amount of time when the calendar says it’s time to screen for
the next rank. That means the system can penalize any deviation from the typical
career path – even one of significant benefit to a service and an officer.
Take Army Lieutenant Joseph Riley, for example, who was a
Rhodes Scholar and the nation’s top ROTC cadet in 2013. Because he spent two
years at Oxford instead of holding the typical military jobs expected of the
Army’s junior officers, the system almost didn’t promote him, and in fact was on
a track to separate him from the military entirely – that is, until General
Milley heard about it last fall and intervened, thankfully.
We can’t have a system that inadvertently almost kicks out a
Rhodes Scholar just because the calendar tells us to. That’s a disincentive to
those who might otherwise take advantage of a broadening opportunity – like
earning their doctorate, or pursuing other advanced training, or doing a tour
with industry – to gain experiences that will make them a better officer. We
need people who’ve had those kinds of diverse experiences; they help keep us
innovative and open to new ideas that can make us better. A PhD, a Masters, or
another experience or form of advanced training doesn’t make for a diverted
warrior – it makes for a smarter warrior.
And if the services can allow those warriors temporarily to
defer their promotion boards, it will help ensure that officers and their
personnel managers who pursue less traditional career paths for them won’t be
harmed for it, and give them time to meet all of DOPMA’s promotion requirements
before they’re considered for promotion.
Now, the third change we’re seeking for DOPMA has to do with
what’s known as lateral entry. As many of you know, civilian doctors can join
the military at officers’ ranks commensurate with their skill and experience.
But in most other specialized fields, there’s no way for the services to recruit
a properly-skilled and experienced civilian who wants to serve in uniform
without them having to start at the lowest ranks.
That’s mostly intentional. Growing our own military leaders
is part of being a profession of arms, and frankly, no civilian job can prepare
a person to lead an infantry or armored brigade in the field, command a fighter
squadron or a bomber wing, or skipper a submarine or an aircraft carrier at sea.
Only years of training and experience in the military can do that.
However, this can be problematic in some very specific areas,
such as cyber and other science – scientific – and technological fields, where
jobs are not only high-skill, but also hard-to-fill, rapidly changing, and in
high demand by the private sector. Here, DoD civilians can sometimes help fill
gaps in expertise, but not always. The fact is, some missions have to be done by
someone who has the legal protections we afford our military personnel.
So in those situations, when perhaps a network defense or
encryption expert from a tech company feels a call to serve, and is willing to
contribute to our mission as a reservist or on active-duty, we need a way to
harness their expertise and put it to use. We may not be able to offer as much
money as the private-sector, but we can offer the noblest of missions. We can
offer the most intriguing of problems. And we should be able to offer a rank,
status, and leadership position commensurate with their abilities.
We’ve done this before in similar career fields. During and
in between World War I and World War II, the Army Signal Corps granted mid-grade
commissions to early radio communications and broadcast pioneers. One was Edwin
Armstrong, inventor of wideband FM radio. Another was David Sarnoff, the head of
RCA, who served on General Eisenhower’s staff in England before and after D-Day,
and after the liberation of Paris helped reestablish its communications links
with London and New York.
Now, I have to say we can’t do this for every career field –
far from it. It will probably never apply to line officers, as they’ll always
need to begin their military careers as second lieutenants and ensigns. But
allowing the military services the flexibility to commission a wider segment of
specialized outside talent – talent who can meet our standards, who provide
unique skills we need, and who are willing to serve in uniform – will help fill
critical gaps in our force. And it will make us more effective.
And this brings me to the fourth and final DOPMA change,
which is intended to make room for an uncertain future. Here, we’re seeking
enduring flexibility for future defense secretaries to let the services make
needed tweaks to DOPMA-related policies down the line, for purposes of improving
the force. While the other three changes are about providing specific solutions
to specific problems, this change will help us be prepared for what we can’t
We know there may be unforeseen problems that could come up
five, 10, or 20 years from now. We also know we’ve never been perfect at
predicting the strategic future. So under certain conditions, the services need
to be able to waive select DOPMA constraints to very quickly build up expertise
in a critical career field. This flexibility will enable the services to respond
to an uncertain future, in ways that can be tailored to their unique capability
requirements and particular personnel needs, without casting off a system that
still largely meets our needs for most officers across the force.
Now, for each of these changes, we’ll need Congress’s help to
provide the proper authorities, but there’s good news here, because we know some
on Capitol Hill already agree with us. And I greatly appreciate that over the
past year, Congressional leaders from both parties have expressed support for
reviewing DOPMA and making some commonsense improvements to help strengthen our
warfighting effectiveness. We’ve already been working with Congress very closely
on this, and I’m looking forward to partnering with both the House and Senate
Armed Services Committees to get this done.
We’re seeking permanent authorities for all this, not
temporary or pilot authorities, because we can’t expect our officers to plan
30-year careers around something temporary. And once these tools are implemented,
we’ll be looking to the Service Chiefs and Service Secretaries to lead the way
in putting them to good use to strengthen the warfighting effectiveness of our
Now in addition to the legislative authorities we’re seeking,
I’m also announcing a couple more measures were taking to help our military
recruit the best talent America has to offer – officers and enlisted alike.
For one, we’re going to modernize our system for recruiting
and processing new personnel into the military. That means no more paper forms.
Plenty of our personnel can tell stories about having to fill out the same
packets of paperwork over and over again – not a good sign for a new recruit
who’s been hearing that we’re the most technologically advanced military in the
world. Force-wide, enlistment alone requires processing 70 to 80 million pieces
of paper every year. That’s slow, expensive, and it’s inefficient. So over the
next five years, we’re going to move to an all-digital system.
We’re also going to expand work being done by DoD’s Joint
Advertising, Market Research & Studies program, known as JAMRS, to leverage
recent advances in data science and microtargeting to build a precision
recruiting database, aimed at making sure we have access to America’s entire
And this is important, because our military’s geographic
pools are shrinking. Today 40 percent of those who join the military come from
just six states. Most ROTC and academy graduates come from northern states,
while the vast majority of our enlisted force hails from states in the southern
part of the country. In some ways that’s not surprising. Military recruiting
tends to be most successful in the South, Southwest, and Big Sky Country, and it
tends to be most difficult in the Northeast. But it’s also paradoxical, since
the Northeast is among the regions with the highest percentage of young
Americans eligible to serve.
If we’re going to ensure we keep recruiting top talent in
future generations, we have to fix this. And we have to start now, because it’ll
only get harder as the economy continues to improve, and as fewer and fewer
young Americans know people who’ve served. We can’t keep fishing in the same old
ponds. Instead, we have to fish in more ponds, new ponds, and ponds we haven’t
been in in a long time. We have to draw talent from our country’s entire pool of
population for our all-volunteer force.
And here’s the new approach we’re going to take. Rather than
identifying geographic and demographic groups that already have a higher
propensity to serve, and sending recruiters to find people like them – which is
what we do now, and will continue to do – we’re going to also build and use this
precision recruiting database to identify those who’d be a great servicemember,
but might not know it. Or maybe they didn’t bother to think about it. Or maybe
there’s some misconception about the military that’s keeping them from doing so.
Or maybe they don’t know a coach, or a teacher, or a principal who’s been in the
military, and can point them in that direction. Either way, we’re going to reach
out and make it clear that DoD is a place where they can be part of something
bigger than themselves, where they can contribute to helping defend our country
and making a better world, where they can improve themselves as they start out
So that’s the military side. Now let me turn to DoD’s
civilian workforce, and the new steps we’re taking to continue keeping it great.
And here, I have to say that far too often, our civilian workforce gets treated
like a political punching bag. It doesn’t deserve that. You – you, the civilians
in the audience today – don’t deserve that.
When people talk about DoD civilians, they’re talking about
over 700,000 patriotic Americans, more than 85 percent of whom live and work
outside the D.C. area, serving across the country and all over the world. And
they do critical jobs – helping repair our ships and airplanes; providing
logistical support to our troops; designing, developing, and acquiring weapon
systems; preventing sexual assault; helping care for our military’s wounded, ill,
and injured; and much, much more.
There’s no question that what our civilians do is often
different from what we expect of our uniformed servicemen and women – that’s
because everyone has their role, from military personnel, to civilians, to
contractors. But there’s also no question our civilians are part of the DoD
family. They, too, serve. They, too, sometimes sacrifice – some supporting
troops in harm’s way. And they’re an equally important part of our Force of the
So the goal here is the same as with our military personnel:
to make sure our future civilian force is just as great as the one we have today
– just as excellent as all of you – by continuing to attract and retain the best
talent America has to offer. And today I’m announcing several new ways we’re
going to do that.
First, we’re seeking authority from Congress to directly hire
civilian employees from college campuses. And make no mistake: this is going to
be huge. I can’t emphasize that enough.
Right now, if a DoD recruiter meets an undergrad student, a
grad student, or a recent graduate who’s a perfect candidate for a particular
job opening, they have to send them to the USAJOBS website. For the job-seeker,
many of you know what that means: an arduous process of creating an online
resume, uploading transcripts and other documents, responding to supplemental
questions, having the application processed, and much, much more. It can take 90
days – and I expect that if you’re lucky – and that’s if you’re lucky, if it’s
all moving at lightspeed. And that’s not even counting the time it takes for a
Some people are able and willing to wait that long, and we’re
lucky for that. But in today’s job market, if you’re a computer science or other
STEM major graduating from Stanford or MIT or the University of Texas, or
someone else very qualified with advanced training, you’re not going to wait
three more months after you applied for us to make you an offer. Competing
employers aren’t going to do that. By the time we get around to it, chances are
you’ll have gotten another offer already – if not accepted it already, and shown
up for your first day of work somewhere else.
That’s bad, but it’s also easy to fix. After all, being able
to make a tentative offer to an exceptional candidate coming out of school isn’t
unique in government – the intelligence community has been doing it for decades.
It also affords our civilian workforce one of the benefits of our military’s
‘up-or-out’ system, which is the easy infusion of young, fresh talent.
This has the potential to be a real game-changer for us. Our
civilian recruiters will be able to go to campus job fair, do some interviews,
and if they find someone who’s the right fit, they can make a tentative offer on
the spot, pending security clearance – potentially cutting down those 90 days to
Second for our civilians is that we’re seeking to create a
new two-way talent exchange program with the private sector.
Right now we have very few such programs, with very limited
scope. If we want to send a civilian from the Defense Logistics Agency or
TRANSCOM to spend six months at a place like Amazon or FedEx to see what we
might be able to learn, there’s no formal mechanism for that. And the same goes
for the opposite direction, if we want to host people from those or other
So we want to create a program to facilitate that – with all
the proper ethical safeguards, of course. And being able to temporarily exchange
civilian employees, talent, and best practices with some of America’s best and
most innovative companies will help DoD stay on cutting edge, and be more
efficient and effective.
And third for the DoD civilians, we’re calling on Congress to
make their maternity and paternity leave paid instead of unpaid. Parental leave
is fully paid for military personnel, and the same should be true for their
This is important for retaining civilian talent, especially
since we want to retain people who are experienced, but not at the end of their
career – which is exactly the time people are having families.
We can’t afford to risk losing civilian talent just because
private-sector companies will pay them during their maternity and paternity
leave, and we won’t. So it’s time to get this done.
As with the changes to DOPMA, we need Congress’s help on each
of these. But here too, there’s also good news – we’ve been working together
already, and we’re pleased with the positive support we’ve seen, particularly
for the on-campus hiring authority. And I’m looking forward to partnering with
the House and Senate Armed Services Committees to finish what we’ve started.
Finally, in addition to the civilian legislative proposals,
I’m also announcing several more initiatives today that we’ll be doing on our
own to help build our civilian force of the future. And let me highlight a few
examples, out of many.
For one, we’re going to better leverage our existing
authorities to directly hire Highly-Qualified Experts into jobs across the
department. Today we only have about 90 such experts across – onboard – across
DoD, including some really talented and innovative people like the director of
the Defense Digital Service, the head of DoD’s Strategic Capabilities Office,
and the Air Force’s Chief Scientist. And we’re way below the maximum. Having
such experts around is often a force-multiplier, so we’re going to use this
authority more often, and increase our number of Highly-Qualified Experts by 10
percent a year over the next five years.
We’re also going to increase participation in the dozens of
career broadening programs we currently offer for civilians – likewise by 10
percent a year over the next five years.
And we’re going to expand DoD’s decade-old
scholarship-for-service program, which brings in graduates in mission-critical
STEM fields to build the next generation of DoD science and technology leaders.
This has helped us attract hundreds of outstanding young civilians graduating
from top universities – Carnegie Mellon, Georgia Tech, Cal Poly, and many more.
And the program retains talent too: over 70 percent have stayed beyond their
service commitment. So we plan to increase the number of scholarships we offer –
here too, by 10 percent each year over the next five years.
And those are only a few of the examples; we’ll be doing even
Now let me close by saying that while all these efforts
represent the capstone of how we’re building the Force of the Future, it’s also
not the end. Because this is an ongoing process – there’s much work to be done
with Congress, and as we implement and refine each initiative we’re pursuing,
we’ll also continue to look for new ones.
I know I’ve announced a lot today, but we’re a big
organization. And every time I walk the halls around the Pentagon, and travel to
our installations across the country and around the world, I see example after
example of what makes us so great: our people. I know these changes will help
you fully exercise your talents, and ensure that you’ll always have good people
to your left and to your right – and in future generations – who are just as
excellent as you are.
You’re part of how we’ll make that happen, because you’re our
best ambassadors. You know better than anyone why the military, and why public
service as a whole, is worthy of consideration as a career – not only for the
difference it can make in our own lives, but the difference it lets us make in
the lives of others.
So I look forward to seeing you in the hallways, and talking
with you about all this and how it’s going to make us even greater.
Thanks for everything you do.