Tag Department of Defense

Will Tax Reform Throttle A U.S. Defense Budget Increase?

John Conger recently reported in Defense One that the tax reform initiative championed by the Trump administration and Republican congressional leaders may torpedo an increase in the U.S. defense budget for 2018. Both the House and Senate have passed authorizations approving the Trump administration’s budget request for $574.5 billion in defense spending, which is $52 billion higher than the limit established by the Budget Control Act (BCA). However, the House and Senate also recently passed a concurrent 2018 budget resolution to facilitate passage of a tax reform bill that caps the defense budget at $522 billion as mandated by the BCA.

The House and Senate armed services committees continue to hammer out the terms of the 2018 defense authorization, which includes increases in troop strength and pay. These priorities could crowd out other spending requested by the services to meet strategic and modernization requirements if the budget remains capped. Congress also continues to resist the call by Secretary of Defense James Mattis to close unneeded bases and facilities, which could free spending for other needs. There is also little interest in reforming Defense Department business practices that allegedly waste $125 billion annually.

Congressional Republicans and Democrats were already headed toward a showdown over 2018 BCA limits on defense spending. Even before the tax reform push, several legislators predicted yet another year-long continuing resolution limiting government spending to the previous year’s levels. A bipartisan consensus existed among some armed services committee members that this would constitute “borderline legislative malpractice, particularly for the Department of Defense.”

Despite the ambitious timeline set by President Trump to pass a tax reform bill, the chances of a continuing resolution remain high. It also seems likely that any agreement to increase defense spending will be through the Overseas Contingency Operations budget, which is not subject to the BCA. Many in Congress agree with Democratic Representative Adam Smith that resorting to this approach is “a fiscal sleight of hand [that] would be bad governance and ‘hypocritical.’”

Are tax reform and increased defense spending incompatible? Stay tuned.

Human Factors In Warfare: Interaction Of Variable Factors

The Second Battle of Ypres, 22 April to 25 May 1915 by Richard Jack [Canadian War Museum]

Trevor Dupuy thought that it was possible to identify and quantify the effects of some individual moral and behavioral (i.e. human) factors on combat. He also believed that many of these factors interacted with each other and with environmental and operational (i.e. physical) variables in combat as well, although parsing and quantifying these effects was a good deal more difficult. Among the combat phenomena he considered to be the result of interaction with human factors were:

Dupuy was critical of combat models and simulations that failed to address these relationships. The prevailing approach to the design of combat modeling used by the U.S. Department of Defense is known as the aggregated, hierarchical, or “bottom-up” construct. Bottom-up models generally use the Lanchester equations, or some variation on them, to calculate combat outcomes between individual soldiers, tanks, airplanes, and ships. These results are then used as inputs for models representing warfare at the brigade/division level, the outputs of which are then fed into theater-level simulations. Many in the American military operations research community believe bottom-up models to be the most realistic method of modeling combat.

Dupuy criticized this approach for many reasons (including the inability of the Lanchester equations to accurately replicate real-world combat outcomes), but mainly because it failed to represent human factors and their interactions with other combat variables.

It is almost undeniable that there must be some interaction among and within the effects of physical as well as behavioral variable factors. I know of no way of measuring this. One thing that is reasonably certain is that the use of the bottom-up approach to model design and development cannot capture such interactions. (Most models in use today are bottom-up models, built up from one-on-one weapons interactions to many-on-many.) Presumably these interactions are captured in a top-down model derived from historical experience, of which there is at least one in existence [by which, Dupuy meant his own].

Dupuy was convinced that any model of combat that failed to incorporate human factors would invariably be inaccurate, which put him at odds with much of the American operations research community.

War does not consist merely of a number of duels. Duels, in fact, are only a very small—though integral—part of combat. Combat is a complex process involving interaction over time of many men and numerous weapons combined in a great number of different, and differently organized, units. This process cannot be understood completely by considering the theoretical interactions of individual men and weapons. Complete understanding requires knowing how to structure such interactions and fit them together. Learning how to structure these interactions must be based on scientific analysis of real combat data.[1]

While this unresolved debate went dormant some time ago, bottom-up models became the simulations of choice in Defense Department campaign planning and analysis. It should be noted, however, that the Defense Department disbanded its campaign-level modeling capabilities in 2011 because the use of the simulations in strategic analysis was criticized as “slow, manpower-intensive, opaque, difficult to explain because of its dependence on complex models, inflexible, and weak in dealing with uncertainty.”

NOTES

[1] Trevor N. Dupuy, Understanding War: History and Theory of Combat (New York: Paragon House, 1987), p. 195.

“So Fricking Stupid”: Muddling Through Strategic Insolvency

As I have mentioned before, the United States faces a crisis of “strategic insolvency” with regard to the imbalance between its foreign and military policy commitments and the resources it has allocated to meet them. Rather than addressing the problem directly, the nation’s political leadership appears to be opting to “muddle through” instead by maintaining the policy and budgetary status quo. A case in point is the 2017 Fiscal Year budget, which should have been approved last year. Instead Congress passed a series of continuing resolutions (CRs) that keeps funding at existing levels while its members try to come to an agreement.

That part is not working out so well. Representative Adam Smith, the ranking Democrat on the House Armed Services Committee (HASC), earlier this week warned that the congressional budget process is headed for “a complete meltdown” in December, Sidney J. Freedberg, Jr. reported in Defense One. The likely outcome, according to Smith, will be another year-long CR in place of a budget. Smith vented that this would constitute “borderline legislative malpractice, particularly for the Department of Defense.”

Smith finds himself in bipartisan agreement with HASC chairman Mac Thornberry and Senate Armed Services chairman John McCain that ongoing CRs and the restrictions of sequestration have contributed to training and maintenance shortfalls that resulted in multiple accidents—including two U.S. Navy ship collisions—that have killed 42 American servicemembers this summer.

As Freedberg explained,

What’s the budget train wreck, according to Smith? The strong Republican majority in the House has passed a defense bill that goes $72 billion over the maximum allowed by the 2011 Budget Control Act. That would trigger the automatic cuts called sequestration unless the BCA is amended, as it has been in the past. But the slim GOP majority in the Senate needs Democratic votes to amend the BCA, and the Dems won’t deal unless non-defense spending rises as much as defense – which is anathema to Republican hardliners in the House.

“Do you understand just how fricking stupid that is?” a clearly frustrated Smith asked rhetorically. A possible alternative would be to shift the extra defense spending into Overseas Contingency Operation funding, which is not subject to the BCA, as has been done before. Smith derided this option as “a fiscal sleight of hand [that] would be bad governance and ‘hypocritical.’”

Just as politics have gridlocked budget negotiations, so to it prevents flexibility in managing the existing defense budget. Smith believes a lot of money could be freed up by closing domestic military bases deemed unnecessary by the Defense Department and canceling some controversial nuclear weapons programs, but such choices would be politically contentious, to say the least.

The fundamental problem may be simpler: no one knows how much money is really needed to properly fund current strategic plans.

One briefer from the Pentagon’s influential and secretive Office of Net Assessment told Smith that “we do not have the money to fund the strategy that we put in place in 2012,” the congressman recalled. “And I said, ‘how much would you need?’…. He had no idea.”

And the muddling through continues.