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4. TITLE AND SUBTITLE Future Congressional Trends and Developments: Military Compensation

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i i

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STRATEGIC STUDIES REPORT ABSTRACT

TITLE: Future Congressional ?rends an~ Developments:

Miiltary Compensation

6UYHO~: Martln O. Poisensk~_. Capr_ain, UDN

Femruary i9~

Thi~ paper provlaes oackgroune on tne workings o±

Congress and the moilvatlons wnlch govern ~ne actlons ane trlereby

the !~l~l~tiv~ pro~!t,~t~ ol ~Uon~Y~lond! ~b~Y~, it th~n develops a profiie of the miil~ary with regarQ to nne type of

organizational values which exlst and argues that a divergence

from soclety has occurred, it describes the compensanlon issues

wnlc~ are of crucial concern to the mliltary, and then conslaers

t~ese lssues in ilght o{ ~uture Congresslonal actlon. 'l'he paper

concludes with a recommeneatlon endorsing the aaaptatlon o5 an

occupatlonal mode± to gui~e future comoensation issues, it aiso

outllnes the recommended manner in which ~uture compensation issues should be approached.

li i

BIOGRaPHICaL SKETCH

Captaln Martln 3. Poisenskl,

Lou~svlile} nas been a member 05

1959. His enllstea servlce

OSN, (BMH, Onlverslty of

%he ~avy slnce enllstlng in

concluaed w~th an academic

schoiarsnip, anQ suDsequen%ly a comm!sslon in l'~bb. ~e has since

served as a rotary wlng aviator in Vietnam, %he 6%[antlc Flee%

and the U.S. Sixth Fleet in the MediLerralnean Sea. He no±ds two

Distinguished Flying Crosses, a Bronze ~tar and twenty-eight alr

Me~ais for his comDat endeavors. He has commanaea two heilcopter

squadrons, the last a Fleet Readiness Zquadron. Captaln Poisenski

is a graduate of the U.S. Naval War Coliege, Class of 19"75 anQ

The National War College. Class of 198~.

iv

CONTENTS

C H A P T E R

i •

Di~CLSIMH~ ............................... ii

~B~T~CT. ............................... i~i

~IOORSGHIC~L ~K~FCH ...................... Iv

INTRODUCTION .............................. i

P~OFiuE5 OF CONO~Eb~ AND i HE i~iL± fxNY ..... e

FUTURE MILITSRY COMPENS~qiON iZSO~ ...... 2!

LIKEuY CONGReSSiONaL ~

Chapter 1

INTRODUCTION

M topic has recently captured the Imaqlnailon. ~. ol C.qlS na[lon.

it has been the cause of a ~rea% aea± of fru~racion. ,.o a

greater degree, at has shapea the a~.r. atuaes ana po±acaes o~

governments on t~,e international scene, inls has Dean %he impact

oz our natlonal deficit, it's the zocai po~n~'; aoou~ %,nlch every

agency witnln our government has actea ana reac~_ee an recen[

days, weeJ

which stili required a%te~tlon. 6t issue an¢i con$!oerea vlaD±e

to each branch are future congress~onai trena~ ana deve±oomenLs.

One could argue for many programs, speciflc branches, action ana

inactlon wnlch, ~± grievously amxecnea D V congress~onai

initiatives to dras~icaiiy reduce approprla%~ons. ~9ou!a soe~± %he

~]em~se oZ the natlonai ae±ense. ]'his paper's concern ana ±ocus

~s u]~on miiltary compensataon. How ~#lll ~bonqress Ll~e±y nana±e

~uture mli~tary compensation ~ssuesr

This pro3ect will begln by loo~lng a~ congresslona± members,

their motivatlons, and their work envlronmen%, i~exL nne mlil~ary

will De proflied in the same manner. ~nls ioo~< at ootn o~ the

ma3or players wall aetermane whether t~ere as a converaent or

divergen~ relationship. 'f~e study con%enas ~nere ~ a elveraent

re!ationshlp. ~fter

consldered cruciai

sDecixlcallv address ~

t~is, the compensatlon ~ssues wnac~ are

to t~e milltarv wll± De a~scussen, ana

the effect on ~ne dli Vo±unnary ~orce

accountin~ O~fzce0 and the mziztary wor~!ng

issues. ~ach group was asKea the same CTUeS%!on~.

military compensation package adequate:

or overages, where are they? in general

problems, who Dest controls the problems

on compensazlon

is %ne mresenr

iz there are snorn~ai±s

~erm~, wha[ are ~ne

ana Fla~ qne approach

Oeen realis%icY Wi±± Congress resDona to compensation issues

• avorabiy or unfavorably? Wiii the passage o~ Lne ~ramm, ~uQman,

ana ~O!lln~s Olil a55ect the Issue'? ~ach respon~eci r o the ~anner

that aii bets were oSf iX the Di±i passea and i% wou±e De months

oezore they co~]ie accurately predlct %he outcome.

Chapter 2

PROFILES OF CONGRESS ~ND THE MILIT6RY

~% firs%, the suD3ect of m~i&[ary comDensa%loD anQ

conaressional trends appears less complex £~an rea±zr, V.

study t~is suo3ec%, i% ~s ~mpera%ive Lo compare

congresslona± structures than nan~ie the issue.

c o n t r a s t becomes evident as one vlews t~e

anQ the military. Congress as a body

observers the essence

constituency. But when

the membership begins to

than ant±clpated.

of ~ongress is

remotely assemoiea

aemonsnrate

First an~ moremos~

D~Oflies OI

Is unlque.

Qerivee

±iKeiy

~'o oes~

ml±l~ary ano

] ~ e s~tlr]nlnq

~onqress

Io mos~

xrom l~S

w~tn!n tr~e CaD!tO±,

cnarac%eri~tlcs ~izxeren%

the membersnlp remalns a

direct refiection of soclety. Ms %ne natlon po!arlSeS on issues

so Goes the Congress. ~ometlmes, congresslona± ln!~la[ive seems

affectee by their quickness to voice ~nelr t~oughts, mun ~nls

could not be further from the truth Decause %ne!r ~[~ouanns stem

from home ana that background forms %nelr responses ate resu±[an%

actions.

/~ member of Congress may De percelvec/ as a~ !no. lVlCltla± ~^~ILn

three personal±Lies. The first reflects a sumservlence %o t~le

constltuency. Next, is the role D±avea as memoer~ oz nne

alSLlnct Socletles withln the Houses om Conaress. uast Is tna% ox

the Doiitician in generai, away ~rom [ne lniiuence or nne Hli±

anQ %he consLltuency at home. Yet, even winn %n~s ±nnerac%lon o±

roles the ±inai product of leglslatlve ac~lon can De expJlc!t±y

%~ea to the desire and opinions of soc~etv.

"fhe ~oregolng keys us to the actlons and

memDers, put w~,at motlvatlons or snlmuil Qoes

percelve? ~i'here has Dean a declaea shlZt, in

substance, %owar~ a more Darticlpatlve

soclai organ~zatlon, insenslt~ve

structures, and encumDerlng procedures [,ave

unprecedented ways. ~ resurgence o± Congress

regain the power of the purse, to recapture

comman~ o± forelgn policy, to strengthen oversl~ht

1

congressional capacity. Perhaps the greatest re~iec%lon of

partlclpa%ory resurgence has been t~e Increase~ slze

reacLlons oX ~ the

the member

style and

or Qemocranlc model of

a~mln] s~rator$, ODSOie~e

Dean c:~al±en~ea in

~as occurrec| to

w~r ~c,w~r , to ~a}~e

roles and

the

anQ

influence of lobbies upon Congress. 6s the chie~ oT the r'oreign

A~fairs and Natlonal Defense Olvislon at the ~onqresslonai

Research Servlce of the Library of Congress, ~taniey HeglnDotnam

2

has expressed the following view:

The following rules shape the behavlor o~ memmers oz

Congress and their aides:

- Public-policy statements are keys to re-elecnlon

prospects.

- 5 -

Cultivate a repute%ion for voters.

independence among

Relations with foreign governments shoula be

assessed in light of their importance to speclfic

economic, strategic, political, and cultural

interests of the United States and its conssituent

elements, whether those b e reglons, states,

congressional districts, or interest groups.

Opportunltles to influence ±orelgn pollcy wlmi

arise sporadically, resulting from unantlclpated

events, public concerns, the legislative calendar,

and occasional oversight activltles. ~hese

opportunities must be exploitea.

Since only sporadic influence on relat±ons wlth

other governments is possible, the goal must be to

correct misguided policies of the past. in dolng

so, alienating those who are attached to the

status quo and excessively reluctant to ad3ust to

new realities will and should occur often.

The ability to use delay, procedural maneuver, ano

surprlse to the disadvantage o~ congresslonai

adversaries in the ratification of forelgn-poilcy

agreements will improve leverage over them in

legislative bargaining.

Abilities as a quick-study general!st are

essential to political survlvai and to ±eglsiatlve

s u c c e s s .

Policy preferences in the natlonai interest must

often be expressed In terms that appeal to the

parochial concerns of the electorate.

Many more examples of conflicting diplomatic ane

legislative imperatives can be cited. The point is

that these different sets of rules create problems when

key actors do not recognize that they are playlng In

two arenas simultaneously or are unaware of the rules

governing play in the other branch.

Perhaps the most pronounced trait of congressional behavior Is

cue taking. ~ thread pertaining to this ran through ~he rules

previously stated and Randall Ripiey also ascribes to its

- 6 -

3

importance :

Members of the House and ~enate are calieQ on no make

a very large number of decisions each year. TRey must

vote publicly hundreds of tlmes on the i loor. They

must vote many more times on the floor by voace vote or

in less visible ways. They must vote in committee ana

subcommittee. They must make a raft of other aecaslons

in committee and subcommattee on whacn no zormai vote

is taken. They are basically asked to be famlllar

enough with everything the government does to make

intelllgent choices ..... Obviously, no single

individual can become even sema-expert in every~hlng on

the government agenda. Therefore, members seek

shortcuts as they try %o make up their manes. ]'hey

seek cues for how to behave and now to vote on a great

variety of policy matters. ]'hey want sources for %hose

cues whose 3udgement they trust and who wail ±eaa them

to "proper" decisions--that is, aecisions ~hat wall

help the senator or representative reach hls own goals:

whether they be reelection, i~eological consastency,

the "public good," personal status, or a comDanatlon oi

these goals.

The foregolng discussions

4

2-1:

are succlnctiy summarlzed by TaDie

- 7 -

TABLH 2-1: PERSONAL CHARACTERISTICS OF CONGRESSIONAL

POLICY ACTORS

Characteristics

Geographical representativeness

Education

Occupation

6ge

Sex and Race

Previous Government

& political experience

Beliefs

Senators and

Representatives Congressional

staff members

Broaaiy representative; Broaaiy representative

overreDresenta~ive of small towns

Highly educated Highly eaucatee

Heavily in law and

business; some

educators; many prof.

politicians

Median: late 40s

~peciaity flea to 3ob:

many professional

public servants; some

genera±isis

Median: qO

Mostly white males ~os~iy w~i~e males

~xtenslve experlence

in Do%h areas Llmlte~ exDerlence

Du% more Qoiiticai

Believes in

suDgovernments and

interest group access;

ideology shifts with

election results

~eileves in

suDgovernments ane

interes~ group access: leeology reflects that

of ~neir employer

Two x acts

sixty-five

experlence,

seventy-percent of !is membership Dy ~he e n a oi the

6

elections. This z act reflects both the loss oI contes[ea

remaln concerning ~his stuay, r Irsu. ±e~s %nan

percent of congresslonal members nave naa military

b

Second, since i~Y6, Congress wlii nave %urnea over

seats

and voluntary retirements ane pernaps slqn~fies a irene away irom

the era o~ the eider statesman,

the ±ack of military experience

"in some

w~tn~n

segments± oI gc, vernmen[

~5onares':~ !s xrlqn~_enlng

i!

ana representative o~ the country in generaL." Fnls is non a

view subscribed to Dy this paper Dut mentloned as in is a current

perception, i~ indlcatlons are coffee%, the percentage wli±

continue to decrease.

What Drozile accurately portrays the presen~ mll!tary: fo what

has the milltary force evolved? The era of a cL%izen army ana

garrlson state have disappeared, along wlth the arax

Profound dif±erences can be shown in eaucatlonai levels, racial

9

content, the growing percentage of women, and marl~ai status.

There is concern this departure has obviated the responsibilities

iO

of citizenship for natlonal service of some type. 611 attest to

the ~act that the present military zorce has ~iver~lee ±rom the

ii

norm of society.

The profile best fits the enlistee ±orce structure. ±t is not

identical for all branches but each has similar problems causing

divergence. The officer corp does not contain aii ~ne same

elements which are found in the enlisted structure, Du~ yet is

divergent from society. The main di±~erences concern percepclons

of a sense of duty, dedication, loyalty and a 5o%a± commitment to

professionalism. Today's of±icer regards sacrlZlce

commonplace, much the same as the early settlers. Finally,

o~±icer's trait of complete dedication of e±~ort to protect

care for their

scene.

as

the

and

men has all but disappeared frola the JJ.~. worm

In brief summary, Congressmen are direct re~iectlons c.~

society. As such, congressional actions can be oerived

society. The military, from the inception of the aVF,

diverged from society so that now a substantlve gap exists.

gap and the pressing need to curb expenditures while

a vlable force presents a formidaDle problem.

from

has

'Fhzs

maintaining

- I 0 -

Chapter 3

Future Military Compensation Issues

Mliitary compensation is a very

factor in the well being o~ our

fundamental acceptance of the

complex sub3ect. It is a key

military personnel and thelr

military as a vocation. This

chapter outlines the military compensation issues and the scope

of the proDlem confronting Congress. It cannot provlae an indepth

analysis of military compensation and the respecnive problems.

Instead it wiil conceptually view military compensation as either

a reward z or institutional servlces or for occupatlona!

services. The derived concluslons wiil show a perception equally

divided between the branches and thereln the dilemma confronnlng

Congress. A spinoff of these conciuslons wlii De an accent upon

the crltical and heightened importance o± the issue Loday.

Prior to the decade of the seventies, mi±ztary compensation was

relatively low and fell zn the Dot to,, of natlonai norms. 6

generous package of G.i. benefits clearly helpee close the qaD.

This satisfied many service members, enough to meet force en~

strengths. The draft generated the requiree number of recruxts,

and even assisted those branches normally not depeneent upon xt.

- i l -

This ceased with the abolishment o± the draft. Congress astutely

percelve~ the necessity Wor more adequate pay and early in the

seventies provided generous compensation increases.

it was at the next 3uncture, the

Force(~VF), that the military couia

either an institution or an occupation.

the adaptation of either one or the other

creation of the 6~I Volunteer

be conceptually vlewed as

Fnis d!~incL!on, and

~eciae~ly c o n c ~ p E s ,

12

tailors the compensation packages of the military.

that these attributes ultimately shape

entire force.

it follows

the comoosltion o~ the

definition of the terms Is required. 3'he instltutional

concept creates a force centered upon values, a very strong sense

of values, it establishes norms which are defined by lofny and

readily accepted goals. The force becomes decidedly different

from society. There is a perception that service is a ceiling to

the military profession. The concept embodies an inaOiiity to

resign, stemming from the sense of calling. Under thls concept,

military compensation zs not monetary. "fhe rewarQs come from

being a member.

The occupational concept creates a force centered upon monetary

compensatlon. It closely follows the laws o± supply and demand.

q'here exists a ma3or requirement for strong contractual

agreements which are explicit and clearly define obiigation and

responsibility. Monetary compensation loses its ±irm attachment

- 12 -

to rank and becomes disconnectea.

foi±ows the laws of supply ana demand wnlcn

the shortage system: pay varies inversely

within different categorles. Clearly, it

model.

in a llke manner, compensatlon

generates payment on

wl~h mannlng levels

is the pure economlc

The cessation of the draft emphasized the above models and

the!r application. Which way dld %he military go? Ne~her

concept was purely adhered to and a haphazara biend resulted.

This pay program shaped the force ana nne exDeccanzons of the

membership, if the constituents of the branches were saris±led,

retention proDiems and recruiting cnalienges wouid De mlnlmal.

This is not the case today. Charles Moskos expresses it as

15

follows:

~ince the end of the draft in 197~, ~he mzlztary

services have been hard pressed %o meet recrultment

goals. Enlistment has fallen particularly short among

those who will serve in ground combat arms and aooard

warships. More than one in three service members do

not complete their initial enlistments. With a growing

number of skilled technicians leaving the military,

retention of qualified people in %he career force has

become an acute problem.

Appiication of these concepts

continuity. This distinction

congressional perceptions.

packages. Past vacillation

has been mixed but not wzth

becomes important in regara to

~'hese perceptions shape compensatlon

between concepts by the Drenches o~

the military and the Department of De±ense has aeiiverea

irrevocable confuslon to congressional members ano their s~a~fs.

- 1 3 -

This confusion has generated frustration, fhls nas grown and

percolated to the extent that service members have suffered.

14

Mgaln Mr. Mos~os expresses it as follows:

Within the Defense Department there has been a

failure to take the advice of those military leaders

who were aware of the realities but unable to ~ransmit

a sense of them past the self-aeceptlons and the

conceptual predispositions wlth which the proponents of

the AVF had equipped themselves. Because %he o~{icial

evidence on the workings o~ the 6VF was suspect,

military manpower hearings on Capitol Hii± became

increasingly straine~, if not antagonlstlc, when

Congress questioned Pentagon spokesmen. ~ i~80 report

of the House Armed Services Committee includes thxs

telling statement:"Ratner than attempting to reorient

the recruiting process to attract people zrom broader

segments of the civilian population and Insteas ol

expiorlng new alternatives to energlze a ~altering

recruiting program, Defense officxals appear to be

expending their efforts to 3ustity the continuatlon of

past policies."

The members of Congress have had a trying task sorting out the

compensation desires of the Department of Defense. Thls confusion

has resulted ±tom the vaclliation over the mlxes requirements and

desires of the indlvl~ual branches.

sponsored Dy the Department of

i5

fhe

De± ense to

consensus approach,

achleve better

It cou±d mean

force levels.

importance of

coexistence between Dranches, has s%atied changes.

the reinstatement of the draft or diminishment of

The Gramm, Rudman and Hollings law emp~aslzes the

the issue. The Executive Department has fenced certaln personnel

issues Dut efforts to balance the budge% coui~ a~fect milltary

compensation.

Chapter 4

LIKELY CONGRESSIONAL ACTION

The previous chapter briefly stated some impilca%ions of past

de±'ense compensation initiatives. These actions an~ the effect

DE the Gramm, ~udman, and Holiings law have presented the members

of Congress with a dilemma when working ±u[ure military

compensation issues. This study argues there are two problem

areas. First, Congress intends to maintain a strong defense.

Second, the budge% will be baianced in accordance with the Gramm,

Rudman, and Hollings law. The argument concludes that Congress

desires to do both and loo~s to the Department of Defense

leadership for a viable means. It goes further %o say that

congressional action wili rest solely with the advlce teneered by

congressional sta±fers ana the Department of i)efense.

Congress reallzes the need to mazntaln a vzaDle ana capabie

military force. The force requires expenditures requested by the

Executive Department which have been expressed In terms of a real

16 growth factor of six percent. If there has been any reluctance

toward the military it has been in the President's employment of

military force, not the ±'act that it exists. This posltion has

- 1 5 -

arawn Olpartlsan support ~rom both Mou.~se.~ o~ c:on~ress. 'i'~i~ has

i7

been expressee by ~oger L~av~ason ana ~ai[er t, lesze~ as zo±iows:

internationai crlses usually Impiy the comm3[men[ oz

]~iil~ary forces. Tnls calls into p ± a y t~e so-ca±iecl "war powers," shared Dy the presiGent an~ f3ongress. ±z

~ne presleen~ takes forceful actlon. ,3ongress nypicaliy

gives initial support. Five oresJoenEs have

recommenae~ formal declaration of war: In a±i out one

case. Congress went along enthuslast!caily, stating in

the Qeciaration that a stake o± war a±reaay

existea .... More probiematlc are the 200 or so

instances when U.~. mlixtary force has been ~eployeo on

xoreign soil--including ~ ma3or in%erven%lons slnce the

eta of Worie War ii.

past w~th leading figures in the Congress. Many

congressmen nave defined the national interest in terms

of what the military believe is necessary for national

security.'"

So one may conclude a strong and viable military

i9

prime concern to the memDersnlp of Congress.

force is of

Next, how to wrestle

wniie ensuring adequate

have the answer. It

wlth the bramm, Rudman and hollings iaw

national securl%y? "fnis plece does not

does argue that even with spending

curtailments, Congress will still De open to the requlrements

the military. This does not imply a tree ride. it

the buraen of frankness and accountability squarely

2O

Department of Defense and the leadership therein.

of

does place

upon the

There has been a great deal of dialogue lately concerning the

Oramm, Rudman, and Hoiiings law. Fhe commentary has ranged from

the extreme that the law will solve our OeZlclt problems

completely to the counter point that portrays the ±aw as the most

21

careless and senseless piece o~ legislasion in recent tlme In

fact the mix of concern and opinions extend to the members

themseives: Senator Hatfleld's remarks concernlng the law,"it is

no more of a panacea ..... In fact, i would say it mighn even

represent a greater danger at some polnt because at soun0s so

22

attractive." The consensus seems to De that budgetary excesses

requlre pelt tlghtenlng Dy all agencles In order to forestall

- 1 7 -

slgniflcan~ tax increases. Senator Domenlcm expressed 3usn this

23

position recently:

". .... 1 want to speak to the deficit ..... Mr.

President, first of ail, spending is spending. For

those who might speak around this country, or in the

committees, or to members of their staff anQ say that

defense spending does not create de±icits but

non-defense spendlng does, let me say that is not the

case. There is no evldence that only one ~ind of

spendlng or another causes deficits".

There exists one other problem which

compensatlon deliberations.

at present in our society.

iowest birth rate since

has close tles to the

It involves the QemographIc factors

The natlon is experienclng It's

2~

I~75. Further exasperating the

situation, the lower end of society is having the greatest number

of births, with t~e greatest increase In women t~Irty years or

older. This causes concern as it may severely limit the number

25

and quality of military candidates. Wiil the milltary De able

to attract the requisite numbers to meet force end strengths?

Will there be enough advanced students for the leadership roles

of the future force? Congress must face thls issue, and may

already have done so with the commencement, in 1980, of

registration procedures for male citizens eighteen or older. Can

one interpet this action as future restoration of the draf~ It

is difficult to decipher at this 3uncture but it remalns a vlaDle

26

option.

6nother influence on congressional policy making is the

existance of two separate chambers with two political parties in

each. Neither is the mirror image of the other nor are the

actions similar. Several dilferences between the two chambers

powerfully influence their policy making biases: terms of office,

size and character of constituencies, and size oZ the legislatlve

27

body itself. Can the biases be consieeree consistent? ~roDabiy

not. Some generalizatlons were possible when the conflgurations

of constituencies home states were much simpler: llke %he era

following the late forties.

be discreaited. Factually,

Republicans controlling the ~enate an~

ma3orities in the House. The leadership

differed in constituency, strategy

distinctions have somehow failea

bicameralism.

Today any such attempt wouid easlly

the 1980"s have witnessea the

the Oemocrats retalning

of each has thereby

and outlook. Sut even these

to sustain the impact oz

28

Ben3amin Page concluees over the iong term that:

Bicameralism is less important in promotlng or

discouraging particular kinds of policy than in the

furtherance of deliberation, the productlon of

evidence, and the revealing of error, in recent years,

commentators have been struck by the convergence of the

two chambers: wnlle House members spread tnelr

attention ever more widely and rely increaslngly on

their staff aides, senators pay more attentlon to

reelection concerns.

This chapter has discussed the followlng congresslonal trends

which, in varying degrees, interact with military compensation

issues:

- 1 9 -

- intentions to maintain a strong military posture.

Support rapid deployments in national interests.

Support real growth of military capaDill%les to achieve

parity.

Control military excursions ~irectea by ~ne execu%ive

Dranch in order to minimize loss of iife, equlpment,

and other costs.

- Intentions to achieve a balancea budge%.

* Control the deficit.

* Control spending but support military.

- Solve demographic problems.

* Reinstitute the draft or other na~lonai

i~% ~SOrt,

servlce as a

- Bicameralism.

The above demands a strong liaison metween congresslonai

elements and the military. Without effective cooperanion,

neither will be able to function. Congress will non develope a

{awning relationship but through assertion of rlght~ui powers

will become a more complete partner in national security issues.

- 2 0 -

Further, there is a clear

professionals, weli versed ana

mandate to infuse all s%af~s wlth

ready to in~erac~ without

29

fne oegree developing adversary relationsnlps.

require~ Goes not imply that a blank check

of cooperatlon

will be awaltlng

compensa%lon problems, instead, it de%alls the responsiDl±ity

and accountability to the Department of Defense ~or proaucxng %he

critical issues without any padding whatsoever, iz ~ne ±eaders

of Congress perceive the military is conformlng no thls

their best option would be to provide the miiltary requests.

sounds simple because it is. Often %imes Lhose

Dureaucracies are Dest served as the result of

actions.

then

it

servea Dy

szmpllstlc

- 2 i -

Chapter 5

OPTIONS FOR THE FUTURE

This chapter concludes the paper, it begins by listing current

compensation ob3ectives. The following discussion recommends

adoption of this study's occupational model for a military

compensation standard. The study concedes certain issues do no~

nave solutions and it so happens that these same items will

affect military compensation.

The military compensation package ~n exlstance today has as its

basis the institutional model defined in this study. 'fnis system

works but contains two ma3or polnts which could be serlous enough

to cause negative

shortcomings involve

between the salary of

Impacts upon force readiness, fhese

first, the small incremental di±±erence

a new recruit and that oZ a senlor petty

officer(E-7) with twenty years service.

well without conscription but if

necessitate a return to the draft or the natlon

Second, the system works

factors

mobilize

would that

exist, golng

compensation

the demographic

must

realize

Before

through conscription, the careerist

differential rewards for service do not

further, this list depicts current mi±itary

- 2 ~ -

oD3ectives appearing

compensation should:

30

in military literature. Military

- Be comparable to private sector pay;

- Be competitive with pay in other sectors:

- Provide an acceptable standard o2 living:

- allow for management flexibility;

- Have a predictable ad3ustment mechanism:

- Be acceptaDie to military personnel;

- Support and preserve the hzerarchicai mziztary structure;

- Be equitaDle;

Minimize pay differentials among people o ~ equa± rank and

service time:

- Be fully visible to servlce members and the pUDilC:

- Recognize di~ering working conditions: and

- Reward superior performance.

Earlier chapters discussed issues facing Congress wnlch impact

upon military compensation. One, consldered a ~ocal poln~, zs

the demographic factors. The services are going to fzna it

- 2 3 -

difficult, if not impossiDle, to attract the numbers ana talent

requlred to man the force at the turn oi nhe century. To change

that, this study contends military compensation must fo±iow the

earlier described occupational model. The mliltary could nhen

compete in the labor market and adhere to the laws of supply ana

demand, it also eliminates the problems of dl±ierentai pay ana

provides the careerist the separation from accessions galnea

through the draft. Advocates o~ the institutionai model will

argue the occupational model is too ~eoreticai in tnls

application, and has not been tested under combat employment. On

the other hand, the ins%itutionaiist contenG tnelr system has

been tested and hold thls question o± war effectiveness to me %he

most critical. Surely this is an arguement whiCh wl±i be costly

to satisfy and hopefully the war wil! not be aval±abie to sort

out the issue. The occupational model, Desldes proven analytlcai

facts, provides a degree of stabliizat~on which Goes no%

otherwise exist. The staDility derives from the fact that any

action affecting compensation, either posltive or negatlve, wlli

direcniy affect the readiness of the force. Tneore~ica±ly tnls

should eliminate imprudent actions dealing with compensatlon.

Last, the occupational model further eliminates another concern

and that is the divergence of the mliitary from the rest o±

society. By inclusion in the competition of the

the military becomes a full partlcipant

Conversely, remalnlng with the

±amor market,

wlth soclety.

institu~lonai model, ~ne milltary

- 2 4 -

wiii contlnue ~o dlver~e ane ix compensatlon ~oes no% ~eep uD

wi%h the market, t~ose wi%~n t~e mi±~%ary cou±d De ±ooKe~ upon

as an un~erpa~ mercenary force. 6t all cosns ~n~s ~verqence

must be arreste~ as ~t porten~s serious consequences xor natlona±

securxty.

~o in conclusion, thls study has ~etermlneQ %ha% %~e members ox

Congress rely upon senior miii~ary leadership ~o prov~e gu~eance

with re~ard to compensatlon issues. Ine~e inpu~s sometlmes carry

more In~±uence than congresslona± staffs. Fur%net, ~on~ress has

an open mind concerning compensatlon !ssues ano %nls a[%~%u~e

must be preserved through resDons~Dle actions on t h e par% o~

Department of Defense personnel, N e x t , ~.~

r e m a i n v ~ a m l e a n e r e a d y , a t r a n s i t i o n n o t h e

o~ compensation woulQ best serve ~ne na~on.

this paper was in draft form as the Gramm,

~he ml±l%ary Is no

o~cuoatlona± moaei

~ a llnai commen~°

~ueman ancl Mol±ings

law was passed. The conciuslons of n n e paper do not change wlth

the new law. ~t should De noted than IZ cer~aln ~actors are

frozen, art1Iiclaily non allowing supply ana deman~ to wor~, ~nen

compensation increases would maneate force leve± reeuc~!ons.

This is very possible ix the law s%anas. ]ne law has ~,een

NOTES

i. Sundquist, James u.,!h@__~@g!!~__9~ ..... ~@@~[gg~@_g~ %~9~@,

Washington, D.C. : The Brooklngs ±ns~Itution,2981. pp. 0 l~'~-ei~.

2. Heginbotham, Stanley J.,"Da~e±ine Washinq~on: !he ~uies of ~ne

Game",~'ore!sn_~Q!icy,~ashlng~on, D.C., the Carneqle ~nQowmen~ ~or international Peace01983: ~o. 53, winter i~-i98e. PP. 15Z-I?Z.

3. kipley, Randaii B. , ~Q~S[~@@I..~Q~_9~Q . . . . ~QA!~Y, ~econa £dltion, New York: 19Z~, p. 232.

4. Ripiey, Randall B. ana brace a. Fran~±in,CQUgE@@@~__~n@

BureaucracM~_@nd Public Policyz ililnols: Fne Oorsey Press. l~bu, p. 37.

5. Congressional interview: Non-Mn~rlbution.

6. Congressional interview: Non-~ttriDutlon.

7. Congressional Interview: Non-~tzrlbunion.

Experience within ~ne MemDers~l~__Q~ ...... ~QD~@~@- Na'fiONau ~MR

COLLEGE,iOn5.

9. Moskos, Charles C. ,"The Citizen-Soioier an~ zne ali Volunteer

Force,"Tne Miiltarv, Miii%arism, and tne_~Q!!~ z ~ew ?or~: Ib~q,

p. i~O

i0. ibid. p. iqO.

iI. fDid. pp.139-153.

12. !bld. D. I~i.

13. ioid. p. iqO.

14. ibid. p. i~i.

i~. Congresslonal interview: Non-antribuzion.

- 26 -

lb. washlnqton Post., ~'eDruary /, ±~6b, O. rib.

1"7. Daviason, ~oger H. and Walter O. Oieszem.q!Qng[e99 .... @nQ ..... iL9

Members z Washington, D.C.: Congressional ~uarserl y inc., !~b,

pp. 422-42~.

I~. Halperln, Morten H- , ~ @ ~ ~ ! Z ..... ~Qil~lq~ ........ @~Q ......

~sp±n, Leg, 0.5. ~epresen~-auive ~rom ~,~_scons~n, ,~.~tjD_s. or .~en.9io.n9." _.

~__.b~__u.~y__of ~n.e_dzAz_narz__~er_zre_Q ..... ~.av ..... ~?~,sn.e~.~. ~.iasnln~non,

b~. ~ • : i ~ l o v ±9'i'b.

~roo~ings lnstltutlon, 1975.

wa$~] !llqto, 11~ . ,.~ . "

and irene ~yrlaKopou±os. ~Z!~@ ..... ~[}e_._IJQg@[D ...... l'~!!!~@~Y-

Washington. O.C. : ~roo~kngs ins%k%uulon, i~±.

Con.qressional Budget O±±ice. C_o_st.s_Q~.,__H.a.nn_z_ng . . . . . t n~_ . . . . . . . G . c _ ' . L ~ - ,!~-lgu_r__v

iilil~arv. %gasnlngton, D.C. : Hay 19~O.

~ashlnq~on, b. k3, : G~U, Jan 19/-/.

28

,~c, ngr~ss!onai

u.C. : Dec I'92~. Preparea Oy k~cnarQ

Zinsmelster. an~ Robert L boi~ich.

u. E!seman. ~aul

il, a±e, Gharies ana Lawrence O. H~il. ~!!l!~[Z .... ~__~!Z!!l~

5ifetlme iarninlas ComDarlsons. ~iexa,~hria. Va.: b.~. 6rmy

~esearcn instltute ~or the 5enavloraJ. ane boclax bclences

~'eD 19~4.

Daviason, ~oger H. and Walter J. OleszeM.

J, iem~,ersx ~econd £dition. Wasnlngton, D.C.

Quar=erly ~nc,i985.

Con~res5 ano its

: Mongresslonal

Department of Defense. Fi±th Quadrennia] .... ~!~___Q~ ...... ~!!!~@~Y

Compensation: Executive Summary. Washingto. D.C. : dan ig~q.

..... . ~'i± th ~uadrennial ~eview oZ .... Mi!ita_r~ ..... C_'Q_m.~ensa_~! c_,n : ~

Overview. Washington, D.C. : Oan ±9,.~G.

29

1984.

Oepart~enn o± Labor, Bureau o-1- 5tat~.stics. ~,_~!@~ee ~er~e~i!!.,~_.iD

i,ledium an~ Large F!rm~, !~_~ ~. isu.~.[e~.~n /_.,Tb. ~}asnln~on,

D.C. : GPO, 6ug !~t$.

Faris, L~r. Jonn H. ]'he Citizen-5o!~!~[ ..... !~ .... ~h~__.r~J~[ ...... ~il@ge~

Towson, Md. : Towson 5tare Unlversiny Foun~anic, n, .3une i~.i.

Report prepared for the U.$. Army ~:esearcn [n:snltu~e for ~ne

Behaviorai and Zociai Sciences.

JJenera± 6ccoun%ing Office, Keport to ~r~e Onalrman, z~uocommlttee

on Miiitary Personnei and Compensatlon, Comm!ur.ee oT ~ne

6rmee 5ervlces, Mouse of ~eDresentatlves: imo±emenLatlon o±

Wasnlngton, O.C. : GAO Oct i9~.

"issue& in Milltary Compensation: t~once%,ns

Mug 1985. Unpumiisned study ior t n e 560.

±or ~±annln~. '~

30

Ha!perin, Morton H. ~ureaucrat~c PQJ=l~).~]s_9[!q ..... r c ' r g A ~ O ..... CQ!%gZ-

~@ashlngton, D.C. : BrooKings instlt.ur, lon. i97~.

Haves .,ames H 'fhe Svolu~on of Mrmea 6orces £nli~r~c Wersonne~ • " " " . . . . . . . . . . . . . . . . . . . . . . . . . . rT2 ...............................

t:gn999mgnL._Pg!!cies: Exegu~lyg..~u999[y. banra ~!onlca. ,.;a. :

'l'he Rand CorDoratlon, I~2.

Megzn[,otham, Stanley O.,"batei]ne Wasnzn~non:

l~ame,"~Qrelsn_._~QilG~ ~ Wasnlng[on, D.,3. ,

Endowment for Znternatlonai Peace, i~mS:

lhe L;arnegle

[qo. ~. 9}Inter

Horow:.tz, ~%aniey A. ~NiiiL__~A~__~Pg[Ag~, ....... ~nq .... Keeq!n~gs.

aiexandria, Va. : Cen%er for Naval ~naiyse$, L'C< ~ , . ~ .

house of ~epresentatlves. D_eDartmen.t Qx .... Lje~_e.n.s_e n c~prgpr_la::iQD

~t!!. !9_~!. .~6th Cong.,2nd sess.. ,weDt. ~6-.t.5±/. wa.~nlnqr_on.

D.C. : GPo, Sept 19~0. Report O'F :he Co, ram± ::ee c,n

agDroDriations 5oge~her wl~n Separate ana ~qoi~ton~.: Views

(to accompany H.R. ~i05).

3z

. . . . . . ~ear_i_nsg.: . . . . . ~Z~>__!o~j:/~*z.._~ea!ug~]enLs:._t-~.z_...beVv_%c.e

Moskos, Cnar~es C. ,Jr. "f$l[izer] ~oi£]le{r an~ ~:i ~,vr" L,i ~!±- :

~%izernatlve no zhe Orai%.'" Onmuoi!snee oaoe~. . r_vanstc, n,

± i . : Northwestern U~]iversity, ,uct ±9~Z.

"'Compensation ane n r , e Miiiuarv insn?.~_ur/on."

Ma~azine, Voi. hi, 6pr. .~-~/8, pp. .~i-~o.

tli r ~ orce

"From lnsnitution to OccuDarlon : ":'re;nas J.n :'If_' irary

£)rganIzation. " 6rmec/ Forces anq_bQc!@~y, Voi . ~, l~Jo. ±, Nov.

1977, pp. qi-49.

! n_ sL_% t:u_t.l_oH__ k; er_ 9u 9 .... Qgcu pa__ t_ l o9 ~ _ _._C_o_ n .t: r; 9 s. s :_ 0~ .... M. 9 q .e- .: 9 .... c '~_

Military_.Orqan_.~%za.t/on. Washlngton, u.t:. : ~ir _~orce C,~_~l. ce ox

~clentlXlC Research, ~'eb ib, 198i.

"Making The M± i-Volunteer

,spproach." Foreign aixairs

i7-~.

Force worK: a J~a'%ionai .~.ervlce

Maqazlne. V. bu, :-c-~J..~. -~-~ • pP.

~e.9_C_e_~Q_!Qler.s. ,Jhlcago, i±. : ]ne Unlvers~ty ol ~Snlcaqo

33

Press, Oct i97@.

Fubllc Opinion and the M!!itary__~sDap~i~nmen 5.

n!li9., Ca.; Sage Pubixcazions. i97i.

~everiy

Oiesze~{, Walzer O. ggn@Kesslg89~ PrQg@gt!re@_pna_~Qll;gy ...... CrQg@~9.,

~9~Q_~Ql!!g~. Washlnqton, D.C. : ,Sonaresslonai ,i:uarneriy

inc., 19~q.

Pace, Peter. 6 Stra%eglc ~tuaies Pro2ecn m or ~he ,Zomman~ann ox

Conqress. Washington, D.C. : EeD i~.

~age° ~onald C. ana Oef±rey i. Mc Henry. ~b@._~ 9~_!PP ~Da!Y@!~

inven%ories in Job Svaluation. Aiexandria°Va. : t:on%rol Data

CorDoratlon, Jan i982.

RiDiey, Randall B., Congress: Process ana_~o!igy a becon~ kaltlon.

New York: w.W. Norton and Company, i97~.

34

~!~._~Q!!qZ. Homewood, fliinois: i n e L~orsey ~ress, i9~0.

Senate. Hear~n~s~_~_~!bz Depar[ment g~i L3@feDS~_6utDQr!z@LioD. x_Q [

Committee on Mrmed ~ervices, 97rh Con~. , isn se~s. ,

~ashlng%ono U.C:. : OPO, Feb, ana ~'~ar, 19~i.

~nitiatives ~or the Bll-Voluteer Force, Delore %he Comm~ntee

on Veterans" B±xairs. 9~th Conq. , ~na sess. 0 b. n~g,

9~-ii~. Wasnlngton0 D.C. : GPO, FeD x~.

~DDroDrlations ±or Fiscal Year 1983. ~art 2. before nne

Committee on 6rmed Services. 97th Cong., ina sess.

Wasninq%on, D.C. : OPO, Feb 19~2.

Sunaqulst, Oames L. 1"he Decline ana Resura@Ioce .... q'~i ....... ~QD@[~.

Washington, D.C. : %'he Brookings inst~tunion, ±~!.

35

Wa%~{ins. Oames [J. "£roslon o~ ~en~efl%s : M t;na&&enge $or

Leadershlp." ]~@y@l._~x_~i@ir~, Voi. 5b, apt i~7%, pp. ~-b.

Warner, Oonn "i'. and Manthew 5. Goiaberg. ]~bg__in~!t!ence oz

~Z~@~!@~Z ~ac%ors on Labor ~PAY, wrofesslonai Paper

~7. Miexanarla, Va. : Center for Naval analyses, uec ±~±.

36

~cKerman, D. ~ongressman, [J.5.

2nnervlew. ~ November ±b~b.

blouse 02 MeoresenEaEl\,es.

Byron, Beverly. Congresswoman, O.5.

interview. 22 November i9~5.

house oz ~eQre~en%a~ives.

Chase, ~iien C. Professional Z;~aiZ Member o~ the ~rmeQ aervices

~]ommittee o~ U.~. House ol ~eDresentatlves. intervle~, x2

~ovemDer I~5.

~3oehlo, 6. Congressman, U.5. House o± ~epresenta~Ives. ~n~erview.

Z2 October i985.

Courter, C. Congressman, U.~.

£n%ervlew. e iJecember i9~.

37

House o~ ~epresent anl ve.s ,

Cron±n, Dr. Thomas i. Pres~en% o~ ~ron!n ,~es~ar,~_n

Communica~.lons inc.. inrervlew, i.D November ~m~b.

n c~

Ounn. ~aries w. Po±izlcal bclence a~eoarzmenn.

Universi%y. Intervlew. I November i~D.

~mmerlch, ~oberno

Commlttee, U.~.

January ±~b.

Prolesslonai bna~ hemmer o~

house o~ ~eoresen~a~ives.

n r r l t e Q oe]-vlces

±n%ervle%~. ~ /

Gilbert, Robert. Cnalrman, Department ox ~o±izlcai mclence, !~iorcn

~astern dniversi%y, interview, i November ±~D.

Hart!s, r'red, lltongressman, O.~. ~enate. reti1"eo.

~ovemDer ±9~.

Ln~ervlew. x ~

Jacobs, M. Congressman, U.~. House o± ~eDresentaLlve:~. in~erv~.ew.

Z U ~ep%ember i~.

38

Johnson, 0ames. Nanlonai War Coiie~e. ±nr.ervlew. z~ ~JctoDer i~z~.

Johnson, RoDer~. Oepartmen~ of Pollnicaz Science, ~±ma Coileae.

interview. 2 November 19~5.

Kinnear, G. i1, Vice 6amlral, ,J.5. Navy, renIrea.

November i9~5.

inzerview, i

Lloyd, Oames. Congressman, 0.5.

interview, q December i~BS.

~ouse 02" Representatives.

Mc Cain, John. Congressman, U.5.

interview. 2 December 1985.

H o u s e of ReDres[~nT~a t i ve.s.

Miller, Robert. Department oi Political

University. interview, i November i~5.

Science, maylor

i~uie, James. Capitol Hall Con±erence Committee.

October 19~5.

intervlew. 30

39

Owens. P. Congressman, O . b .

BiovemDer i~b.

Sic, ms, f'. Congressman, U..6. t, el]ar_e, interv!e%v, z3J :-~,