New Strategic Guidance
For the last decade, the United States has undertaken extended operations in Iraq and
Afghanistan. As we responsibly draw down from these operations, take steps to protect our
Nation��s economic vitality, and protect our interests in a world of accelerating change, we face an
inflection point. The changing geopolitical environment and our changing fiscal circumstances
merited a reassessment of U.S. defense strategy. Out of this assessment, the Department of
Defense (DoD) developed a strategy that transitions our defense enterprise from an emphasis on
today��s wars to preparing for future challenges, protects the broad range of U.S. national security
interests, advances the Department��s efforts to rebalance and reform, and supports the national
security imperative of deficit reduction by reducing defense spending. The resulting strategic
guidance provided a set of precepts to guide decisions regarding the size and shape of the force
over subsequent budget cycles.
To implement the new strategic guidance, the Joint Force will need to recalibrate its
capabilities and make selective additional investments to succeed in the following missions:
countering terrorism and irregular warfare, deterring and defeating aggression, projecting power
despite anti-access/area denial challenges, countering weapons of mass destruction, operating
effectively in cyberspace and space, maintaining a safe, secure, and effective nuclear deterrent,
defending the homeland and providing support to civil authorities, providing a stabilizing
presence, conducting stability and counterinsurgency operations, and conducting humanitarian,
disaster relief, and other operations.
These missions will determine and shape the capabilities required by the future Joint Force,
and the Air Force must continue to provide key capabilities in all 10 mission areas. However, the
overall capacity, or size of the force, will be based on the requirements that the following missions
demand: countering terrorism and irregular warfare, deterring and defeating aggression,
maintaining a safe, secure, and effective nuclear deterrent, and defending the homeland and
supporting civil authorities. U.S. forces will no longer be sized to conduct large-scale, prolonged
The new guidance requires U.S. forces to remain capable of deterring and defeating
aggression by any potential adversary. Credible deterrence results from maintaining both the
capabilities required to deny an aggressor the prospect of achieving his objectives and from the
complementary capability to impose unacceptable costs on the aggressor. Our planning envisages
forces that are able to fully deny a capable state��s aggressive objectives in one region by
conducting a combined arms campaign across all domains �C land, air, maritime, space, and
cyberspace. Even when U.S. forces are committed to a large scale operation in one region, they
will be capable of denying the objectives of �C or imposing unacceptable costs on �C an opportunistic
aggressor in a second region.
The Air Force employed this guidance to prepare an FY13 budget request that ensures the
Air Force meets the capability and force-sizing requirements directed by the new strategic
guidance, and is:
Adaptable and capable of deterring aggression and providing a stabilizing presence, especially in the highest priority areas and missions in the Asia-Pacific region and the Middle East, while still ensuring our ability to maintain our defense commitments to Europe and other allies and partners;
Ready, rapidly deployable, and expeditionary such that it can project power on
Capable of conducting homeland defense and providing support to civil authorities;
Armed with cutting edge capabilities that exploit our technological, joint, and networked advantage;
Able to reconstitute quickly or grow capabilities as needed; and
Manned and led by the highest quality professionals.
To deliver the capabilities required by the new strategic guidance and remain within
funding constraints, the Air Force made difficult choices in all core functions, including the decision
to divest portions of combat and combat enabler forces. The guiding principle was balance. To
retain critical core capabilities and maintain our ability to rapidly respond to mission demands, the
Air Force balanced risk to force structure and modernization, while maintaining readiness and
people programs across all mission areas. We will provide more details about our FY13 decisions
on modernization, readiness, and people programs in the coming weeks.
This paper will focus on the decisions we made to divest aircraft and re-mission units, with
a particular emphasis on how these choices affect the Air National Guard (ANG) and Air Force
Reserve. Our programmed reductions follow detailed assessments of future conflict scenarios and
enduring rotational deployment requirements and were chosen to maintain capable and lethal
forces while preserving ready and sustainable Active and Reserve Components. The Air Force will
be smaller, but will remain highly capable, lethal, ready, agile, and deployable.
Air Force Aircraft Reductions
The Air Force FY 13 Budget Request achieves $8.7 billion in savings across the Active and
Reserve Components by retiring over 200 aircraft in FY 13 and nearly 300 aircraft over the FYDP,
consistent with the new strategic guidance. Our programmed force reductions are wide ranging
and affect over 60 installations. Without the Total Force re-missioning actions described later in
the paper, they would have significantly affected 24 units and left eight installations without an Air
Force presence. They will have direct impact in 33 states, but in order to support Total Force remissioning,
the manpower realignment plan built by the Reserve Components will significantly
affect additional units in all 54 states and territories. We will be able to provide manpower
adjustments by installation and state in the coming weeks.
Our analysis of requirements driven by the new strategy shaped all of our decisions. Our
force sizing analysis answered two complementary questions: what is the maximum, or surge,
requirement posed by the force sizing model of the new strategy; and what is the steady state, or
post-surge, requirement for deployed rotational forces? Because the new guidance requires the
Joint Force to be capable of fighting one large scale, combined arms campaign with sufficient
combat power to also deny a second adversary, and deemphasized large-scale, prolonged stability
operations, our FY13 budget request accepts risk by retiring fighter, mobility, and intelligence,
surveillance, and reconnaissance (ISR) aircraft excess to the surge requirements of the new force
sizing construct. Although the U.S. has removed all combat forces from Iraq and the new strategic
guidance reduces the steady state requirement for ground forces, we expect Air Force steady state
rotational requirements to remain nearly constant, or perhaps increase, under the new strategy.
This continuing rotational post-surge requirement is a key factor in determining the required mix
between Active and Reserve Component forces due to differences in sustainable deployment rates
and operations tempo.
Where possible, we attempted to retire all aircraft of a specific type, allowing us to also
divest the unique training and logistic support structure for that aircraft. Where that was not
possible, we worked to retire the oldest aircraft first, and redistributed aircraft into effective and
economical units, eliminating other units when that was most efficient. Where we retained older
aircraft, we are taking steps to ensure they will remain viable into the future.
Combat Air Forces
As directed by the new strategic guidance, we accepted risk in our Combat Air Forces by
retiring or reclassifying aircraft from seven squadrons: five A-10 squadrons, one F-16 squadron,
and one training/support coded F-15 Aggressor squadron. Because of the Department��s evolving
posture, one of the retiring squadrons is an overseas squadron. We chose to retire more A-10s as
a result of guidance to size our forces for one large scale combined arms campaign with sufficient
combat power to also deny a second adversary, without conducting a large scale, prolonged
stability operation. The A-10 remains essential for combined arms and stability operations and we
retain enough A-10s to meet the requirements of the new strategic guidance, but multi-role
platforms provide more utility across the range of the potential missions for which we are directed
After reductions, we retain 54 combat-coded fighter squadrons and maintain the
capabilities and capacity required to meet the requirements of new strategic guidance at
increased risk while providing a bridge to the Fifth Generation F-35. Although we transfer five F-15
Aggressor aircraft to attrition reserve status and eliminate one Aggressor squadron flag, we
maintain a robust Aggressor training capability. We will relocate our F-16 Aggressor squadron in
Alaska from Eielson AFB to Elmendorf AFB, allowing us to achieve savings in base support at
Eielson beginning in FY15.
Mobility Air Forces
We also reduced our mobility capacity in line with the requirements of the new strategic
guidance and the parallel reductions in land forces, retiring all 27 C-5As, retiring or canceling
procurement of all 38 planned C-27Js, and retiring the 65 oldest C-130s. We chose to retire C-5As
because of historically lower mission capable rates relative to the C-17 and C-5M. Retiring the
entire C-5A fleet provides additional savings in training and logistics support that could not have
been achieved by spreading retirements over multiple aircraft types. Divesting the entire C-27J
fleet also achieves savings by substituting the lower life cycle costs of the more capable C-130 for
the niche C-27J capability. As part of our C-130 retirement strategy, we streamline operations and
maintenance by realigning some additional C-130 aircraft to ensure Reserve Component units
operate only one C-130 type at any location.
After retirements, we will maintain a fleet of 275 strategic airlifters (52 C-5Ms and 223 C-17s) and 318 C-130s (134 C-130Js and 184 C-130Hs) and our analysis shows that the remaining
aircraft are sufficient to meet the airlift requirements of the new strategy, including our
commitment for direct support of the Army. We appreciate Congress�� support in adjusting the
legislated mandatory number of strategic airlifters. Given the changes in strategy and force sizing,
we will be seeking a new minimum of 275 aircraft.
We also retire 20 KC-135s and maintain a fleet of 453 air refueling aircraft, sufficient to
meet refined requirements. KC-46 development remains on track for initial deliveries in FY16.
Intelligence, Surveillance, and Reconnaissance
Intelligence, surveillance, and reconnaissance reductions divest all 18 Block 30 RQ-4s,
generating $2.5 billion in Future Years Defense Program (FYDP) savings by choosing to rely on the
proven capability of the mature U-2S aircraft and sensors. The U-2 has superior sensor capabilities
now, meets the new Joint Requirements Oversight Council (JROC) force structure requirement,
and is viable through 2040. We generate additional savings by eliminating funding for all 11 RC-26s while transferring the more capable MC-12 fleet from the Active Component to the Air National Guard in FY14. We also retire one E-8C aircraft that is damaged beyond economical repair.
Reserve Component Aircraft Reductions and Re-Missioning
The Air Force has enjoyed great success in leveraging our Total Force Enterprise to present
our enduring capabilities to the Joint warfighter, and we have successfully met the demand of
increased operations tempo over the last two decades through a combination of volunteerism,
selective mobilization, and the creation of Active, Reserve, and Guard Associations. The Air
National Guard and Air Force Reserve are integrated into all major Air Force mission areas, train to
the same high standards as the Active Component, and are invaluable partners in meeting our
many and varied commitments. Over the years, we have adjusted the mix between Active and
Reserve Components to ensure we maintained a ready and sustainable force and could meet our
surge and rotational requirements. However, two decades of military end strength and force
structure reductions have shifted the ratio of Active to Reserve Component forces. In 1990, the
Reserve Component represented 25 percent of the Total Force end strength; that percentage has
increased to 35 percent today. Reserve Component aircraft ownership also increased from
approximately 23 percent to 28 percent over the same period.
Our Reserve Components have proven to be a superb investment -- providing critical Air
Force capabilities through a very challenging time. However, our analysis tells us we have reduced
the Active Component to the point that further reductions would limit our ability to respond
quickly to multiple crises or sustain long duration commitments without asking our Airmen �C
Active and Reserve Component �C to deploy at rates that cannot be sustained by our Total Force
Airmen and their families. We also know that the entire Total Force �C Active Component, Air
National Guard, and Air Force Reserve �C depends on the Active Component to recruit, train, and
equip the Airmen of the future. Further Active Component aircraft reductions would require
detailed analysis to ensure we do not make the Active Component too small to provide the skilled
aircrew, maintenance, and support personnel required to sustain the Total Force. Maintaining the
appropriate Active/Reserve mix will remain critical to sustaining Air Force capabilities for forward
presence and rapid response, meeting overseas rotational demands with a smaller force, and
taking care of our most precious resource, our people.
As we were driven to consider reductions in FY13, we carefully considered the ratio
between the Active and Reserve Components and made choices that:
1) Ensured the Total Force could fulfill the Air Force��s surge requirements as directed by the force sizing construct of the new strategic guidance;
2) Maintained the balance between Active and Reserve Components required to fulfill continuing rotational requirements at deployment rates and personnel tempos that are sustainable for both the Active and Reserve Components;
3) Made sure the Active Component retained the recruiting, training, and operational seasoning base required to sustain the Active Air Force, Air National Guard, and Air Force Reserve into the future; and
4) Ensured the Reserve Component remains relevant and engaged in both enduring and evolving missions.
The Air National Guard and Air Force Reserve were involved in all analysis and decisions,
and employed the following principles and strategies to build Reserve Component aircraft
reduction and re-missioning plans.
The Air National Guard��s Capstone Principles informed Air Force decisions involving the ANG:
1) Allocate at least one flying unit with ANG equipment to each state;
2) Recapitalize concurrently and in balance with the regular component;
3) Manage Air National Guard resources with Air National Guard people;
4) Adopt missions that fit the militia construct; and
5) Build dual-use capabilities.
The Air Force Reserve employed the following realignment strategies in selecting specific
locations for aircraft reductions:
1) Ensure aircraft reductions do not negatively impact operational support to the Combatant Commands;
2) Ensure force structure movements do not create any new Air Force bills;
3) Ensure risk is minimized by optimizing crew ratios to exploit expected increase in mission capability rates; and
4) Considered locations that continued to have an Air Force mission due to the presence of another Air Force Component.
Total Force Aircraft Reductions by Fiscal Year
FY 13 Actions: Divests all C-27J aircraft, eliminating aircraft based at or planned for
Warfield AGS (Martin State), MD (4), Kellogg AGS (Battle Creek), MI (4), Fargo AGS (Hector), ND
(4), Mansfield Lahm AGS, OH (4), Great Falls, MT (4), Bradley , CT (4), and Key Field AGS (Meridian),
MS (6). Removes A-10s from Barksdale AFB, LA (retires 21 and transfers three), Selfridge ANGB,
MI (21), Ft Smith, AR (20), Ft Wayne, IN (20), and an Active Component overseas location (20).
Removes F-16s from Des Moines, IA (21) and transfers Active Component F-16 Aggressors from
Eielson AFB, AK (19) to Joint Base (JB) Elmendorf-Richardson, AK (19). Aircraft retirements and
transfers result in net reductions of C-130Hs at JB Elmendorf-Richardson, AK (4 H2) (eliminating an
Active association), Niagara, NY (3 H2) (eliminating a Reserve association), Rosecrans AGS (St
Joseph), MO (10 H2.5), Youngstown-Warren, OH (6 H2), Louisville, KY (1 H2.5), Charleston, WV (1
H3), Cheyenne, WY (1 H2.5), Stratton AGS (Schenectady), NY (4 H2), Dobbins ARB, GA (7 H2), and
Pittsburgh, PA (7 H2). The Pittsburgh actions result in the closure of the associated Air Reserve
Station at Pittsburgh, PA (closure does not exceed Base Realignment and Closure (BRAC) threshold
in accordance with 10 U.S.C. �ì 2687). Retires KC-135s from Rickenbacker, OH (6), Pittsburgh
ANGB, PA (4), Tinker AFB, OK (4), and Altus AFB, OK (three Active Component) as well as three
Backup Aircraft Inventory (BAI) aircraft from Sky Harbor (Phoenix), AZ (1), Sioux City AGS, IA (1),
and March ARB, CA (1). Reduces KC-135s at McGhee-Tyson, TN (2) and Gen Mitchell, WI (2).
Begins retirement of the C-5A fleet at JB San Antonio (Lackland AFB), TX (5) and eliminates an E-8C
damaged beyond economical repair from Robins ARB, GA (1). Retires Active Component Block 30
RQ-4s from Beale AFB, CA (18).
Proposed FY 14 Actions: Removes C-130Hs from Maxwell AFB, AL (7 H2), Naval Air Station
(NAS) Joint Reserve Base (JRB) Ft Worth (Carswell), TX (8 H2) and Minneapolis-St Paul (8 H3), and
removes C-130Js from Keesler AFB, MS (10). Continues to retire C-5As at JB San Antonio (Lackland
AFB), TX (3) and Shepherd Field AGS (Martinsburg), WV (5). Converts Active Component F-15Cs at
Nellis AFB, NV (5) from Primary Aircraft Inventory (PAI) to BAI status. Transfers 42 Active
Component MC-12s from Beale AFB to the Air National Guard.
Proposed FY 15 Actions: Retires remaining Air National Guard C-5As based at Shepherd
Field (Martinsburg), WV (6), and additional Air Force Reserve C-5As at JB San Antonio (Lackland
AFB) (2). Eliminates funding for all 11 RC-26 aircraft, retiring aircraft based at Ellington Field
(Houston), TX (1), Kirtland AFB, NM (1), Tucson, AZ (1), Fresno, CA (1), Fairchild AFB, WA (1), Key
Field (Meridian), MS (1), Dannelly Field, AL (1), Truax AGS (Madison), WI (1), Hancock Field AGS
(Syracuse), NY (1), Charleston, WV (1), and Jacksonville, FL (1).
Proposed FY 16 Action: Completes retirement of the Air Force Reserve C-5A fleet by
divesting the remaining aircraft at JB San Antonio (Lackland AFB), TX (6). Removes C-130H from
Savannah, GA (8 H2) and Little Rock, AR (eight Active Component H3). Removes C5Ms from
Westover, MA (8).
Proposed FY 17 Actions: Removes C-130Hs from Niagara, NY (8 H2), Little Rock, AR (three
Reserve Component H2), Charlotte, NC (2 H3), and Little Rock AR (six Active Component H3).
Total Force Re-Missioning by Fiscal Year
As a Total Force �C Active Air Force, Air National Guard, and Air Force Reserve -- we have
developed a detailed re-missioning plan that realigns continuing missions to preserve 14 of 24
units, maintains an Air Force presence on seven of the eight affected installations, expands
Reserve Component participation in our growing ISR mission, and preserves an appropriate Active
and Reserve Component force mix. The Air Force FY13 budget request commits approximately
$600 million over the FYDP to execute and sustain re-missioning actions that establish new MQ-1/9 Remote Split Operations Squadrons, transfer the MC-12 fleet to the Air National Guard,
thicken Reserve Component ISR and cyber participation, and transfer Active Component C-17s to
the Reserve Component.
FY 12 Actions: Transfers six WC-130 aircraft from Nashville, TN to Luis Munoz, Puerto Rico,
replacing retiring C-130Es. Establishes an MQ-1/9 Remote Split Operations (RSO) squadron at
Nashville. Enlarges Nashville��s Intelligence Squadron into a Targeting Group and creates a new
FY 13 Actions: Completing a FY12 PB action, transfers eight C-17s from the Active
Component to the Air National Guard at Memphis, TN (replacing C-5As). Adds C-130Hs at
Youngstown-Warren, OH (4 H2.5) and Cheyenne, WY (1 H3). Establishes an ISR Group and expands
the Net Warfare Sq at Warfield AGS (Martin State), MD to replace divested C-27s; establishes an
Intelligence Targeting Group at Fargo AGS (Hector), ND; creates four additional MQ-1/9 RSO
elements at Ft Smith, AR (replacing A-10s), Des Moines, IA (replacing F-16s), Kellogg AGS (Battle
Creek), MI (replacing C-27s), and Willow Grove, PA; adds KC-135s to Selfridge ANGB, MI (4). Adds
A-10s at Whiteman AFB, MO (3).
Proposed FY 14 Actions: Transfers 42 Active Component MC-12s to the Air National Guard
by assigning between nine and eleven aircraft to each of four Air National Guard locations -- Ft
Wayne, IN (replacing A-10s), Bradley, CT (replacing C-27s), Key Field AGS (Meridian), MS (replacing
C-27s), and NAS Ft Worth JRB (Carswell), TX (replacing C-130s). Creates an Active Association at
Beale AFB, CA to conduct MC-12 training and provides an additional deployed Combat Air Patrol
forward using up to six Air National Guard aircraft. Final aircraft assignments for the four Air
National Guard locations and the Active association at Beale will be determined as part of the Air
Force's FY14 budget submission after completion of a program plan and operational concept.
Transfers C-130Js to Dobbins ARB, GA (10) (replacing C-130Hs) and C-130Hs to Rosecrans AGS (St
Joseph), MO (8 H3) and Great Falls, MT (8 H2) (replacing C-27s).
Proposed FY 15 Action: Transfers eight Active Component C-17s to the Air National Guard
at Shepherd Field AGS (Martinsburg), WV (replacing C-5As).
Proposed FY 16 Action: Within the Air Force Reserve, transfers eight C-5Ms from
Westover ARB, MA to JB San Antonio (Lackland AFB), TX, (replacing C-5As). Replaces C-130H2s at
Savannah, GA (8) with C-130H3s. Replaces Active Component C-130H3s (8) at Little Rock AFB, AR
with C-130H1 (7).
Proposed FY 17 Action: Dobbins ARB, GA receives two additional C-130Js for a total of 12.
Replaces C-130H2s at Niagara, NY (8) with C-130H3s. Replaces Active Component C-130H3s (6) at Little Rock AFB, AR with C-130H1s (7).
After proposed reductions and re-missioning, Reserve Component end strength will make
up 33 percent of Total Force military personnel, a reduction of two percent from the FY12
President��s Budget (PB) position. The Reserve Component will own 24 percent of Total Force
aircraft, two percent less than their FY12 PB share. Within the Combat Air Forces, the percentage
of total aircraft in the Reserve Component will be 38 percent, four percent less than in FY12. For
the Mobility Air Forces, the Reserve Component share shifts from 51 percent to 46 percent.
In addition to specific re-missioning actions, the Air Force has also taken a variety of steps
to secure the future of the Air National Guard and Air Force Reserve in a balanced Total Force.
Future Aircraft Flow Down
We remain committed to acquiring the F-35A as our future multi-role fighter. Although
delivery of the F-35 has been delayed, it is still the future of both Active and Reserve multi-role
squadrons. The Air Force has acquired 12 F-35s to date and plans to acquire over 160 more
through FY17. The full-rate production plan is yet to be determined.
We have decided to pursue a scalable Service Life Extension Program (SLEP) for
approximately 350 F-16s. Although our oldest F-16s will remain viable through the end of this
decade, we plan to begin fielding aircraft with SLEP structural improvements in 2017. The
program will ensure the F-16 remains viable and relevant for future Active and Reserve
Component multi-role fighter squadrons until the F-35 arrives in greater numbers. We will also
upgrade combat avionics for a substantial portion of the SLEP-ed aircraft with aircraft delivery
beginning in FY18.
We are committed to developing a detailed aircraft flow down plan that describes how the
F-35 and modernized and SLEP-ed F-16s will be integrated into the Total Force and replace aging
aircraft. We will build a detailed plan after we have a clearer view of F-35 delivery schedules and
have completed Force Composition Analysis studies to determine the optimum Active and Reserve
Component unit size and force mix for our remaining multi-role fighter force. As always, the
leadership of the Air National Guard and Air Force Reserve will be active partners in determining
We are also committed to making sure our 184 remaining C-130H variants remain viable
and relevant. We developed the C-130 Avionics Modernization Program (AMP) to ensure our C-130H fleet met basic communication, navigation, surveillance, and air traffic management
(CNS/ATM) requirements. We later determined that there are less technically complex
approaches to meet these requirements and resolve select obsolescence issues. Therefore, our
FY13 budget submission terminates the C-130 AMP. However, we have funded an FY13 new start
CNS/ATM program to ensure our C-130H fleet will remain viable and relevant, while generating
more than $2.2 billion in savings over the FYDP.
Strategic Basing Process
The Air Force Strategic Basing Process was established by the Secretary of the Air Force in
August 2009 to create an open, transparent, and consistent process for selecting preferred Total
Force basing options. We will employ the Strategic Basing Process to identify preferred Active and
Reserve Component basing locations for new aircraft as they become available as part of our
recapitalization and modernization efforts.
BRAC 2005 established Eglin AFB as the Initial Joint Training Site for the F-35A. In July
2010, the Air Force announced preferred alternatives for further basing of the initial 250-300 F-35As, identifying Hill AFB and Burlington ANGB as the initial operational locations and Luke AFB as
the next training location after Eglin, accommodating all F-35As currently scheduled for delivery
through FY19. The Air Force will announce future preferred and reasonable alternatives
approximately three years prior to delivery of aircraft to the next round of bases. Given current F-35 production estimates, the next set of F-35 basing decisions will include domestic and overseas
bases and will not be required prior to FY17. Over the next two years, we will determine the
optimum size of Active and Reserve Component F-35 units and the total number of required F-35 operating locations.
The Air Force is currently developing requirements for the first two KC-46 bases, and
expects to approve basing criteria in March 2012, identify candidate installations in June 2012,
select preferred and reasonable alternatives in December 2012, and make final decisions in
December 2013. These first two bases will begin receiving aircraft in FY16. We will announce
future preferred and reasonable alternatives approximately three years prior to delivery of aircraft
to the next round of bases. Given current production estimates, the next KC-46 basing decisions
will not be required prior to FY14. We are committed to creating associations at all KC-46
operating locations in the continental United States.
Potential Legislative Changes
In coordination with the Air National Guard and Air Force Reserve, the Air Force and the
Department of Defense are reviewing the authorities that might be needed to address the impact
of programmed force reduction and re-missioning actions on the affected members of the Air
National Guard, Air Force Reserve, and their families.
Air Force Total Force Enterprise and Associations
The Air Force Total Force Enterprise (TFE) management approach provides an inclusive,
fact-based, and iterative process designed to maximize combat capability and optimize force
structure through a range of innovative organizational constructs and personnel policies that
optimize and integrate the capabilities of all Air Force components.
Associations are an integral part of balancing the Total Force to meet the current and
future air, space and cyber requirements of the Joint warfighter. Total Force Integration (TFI)
associations pair two units, (host and associate) representing two Air Force components, operating
together. The host unit is assigned the physical resources for mission accomplishment (aircraft,
equipment, facilities) and the associate unit shares those resources. Currently, there are three
types of TFI associations: Classic, Active and Air Reserve Component (ARC).
Classic Associations pair units as an Active Component host with a Reserve Component
associate which can improve operational synergies and add capacity during surge operations at
reduced cost. Active Associations pair a Reserve Component host and an Active Component
associate to improve access to aircraft and total rotational capacity by assigning Active Component
Airmen in Reserve Component units, allowing the highly experienced Reserve Component to help
develop and season maturing Active Component Airmen. ARC Associations pair a Reserve
Component host and a Reserve Component associate to deliver operational and organizational
There are currently 100 TFI associations across a variety of weapons systems/functional
areas and Air Force Major Commands. The Air Force is planning to add Active Associations at all
ARC fighter locations, and Air Mobility Command intends to establish Active or Classic Associations
at all continental U.S. KC-46 locations. The Air Force will continue to explore additional
opportunities for associations in order to create efficiencies, encourage retention of valuable
human capital, and above all, increase Air Force combat capabilities.
The Air Force has decided to maintain 18 assigned F-16 aircraft at Air National Guard
fighter squadrons to support new F-16 Active Associations at Truax AGS (Madison), WI, Buckley,
CO, Joe Foss Field, SD, and Duluth, MN, in addition to the Associations already programmed at
Burlington, VT, and Dannelly Field, AL. Although the previously programmed Active Association at
Barksdale AFB, LA, is eliminated with the Air Force Reserve Command A-10 retirement, the Active
Associations at Whiteman AFB, MO, NAS Ft Worth JRB (Carswell), TX and Homestead ARB, FL will
continue as planned. The Chief of Staff of the Air Force has directed the Air Force to develop
additional Active Associations at all ARC fighter locations to ensure that the Total Force is able to
absorb and season enough young pilots and maintainers to meet future Total Force requirements.
The AF FY13 budget request also establishes C-130J Active Associations at Dobbins ARB, GA
starting in FY14, Quonset Point Airport, RI in FY16, and Channel Islands, CA in FY17, as well as an
Active Association with a C-130H unit in FY13 at a location still to be determined. Additionally,
Classic Associations will be established in intelligence at Fort Meade, MD, Offutt AFB, NE and
Hurlburt Field, FL, and in program analysis at Wright-Patterson AFB, OH. We have also established
a new association with the MC-12W mission transfer to the Air National Guard in FY 14. An Active
Association will be stood up to operate the MC-12W Flying Training Unit at Beale AFB, using up to
six Air National Guard aircraft. The Active Association will also provide one Combat Air Patrol
(CAP) of deployed capability.
The Air Force previously funded a RED HORSE Active Association at Beale AFB, CA, as well
as Classic Associations in cyber at JB San Antonio (Lackland AFB), TX; Aviation Foreign Internal
Defense at a location to be determined; Security Forces at Davis-Monthan AFB, NM; and
intelligence at Wright-Patterson AFB, OH, and JB Langley-Eustis, VA. In all, 15 new Associations are
programmed, and the Air Force will explore additional opportunities for associations in our FY14
Military Personnel Appropriation Budget Activity Code
We are normalizing our approach to how we program ARC Military Personnel
Appropriation (MPA) man day funding by improving the way we forecast, plan, program, and fund
MPA man day accounts in our budget build process. These inputs will ensure adequate and
predictable funding to support the required level of Reserve Component participation. Our
normalization efforts include introducing MPA requirements into our corporate planning process
earlier and working with the Office of the Secretary of Defense to create a distinct budget activity
with a sub-account dedicated to facilitating more flexible Reserve Component operations,
increasing opportunities for Reserve Component participation, and tracking MPA within the Air
Force Military Personnel Account. If approved, we would expect to include this account in our
FY14 budget submission.
Improving Strategic Planning Transparency and Processes
We have embarked on an effort to examine Active Air Force, Air National Guard, and Air
Force Reserve composition across all the Air Force��s major functions through the Total Force
Enterprise Review Process and System Force Composition Analyses. The Total Force Enterprise
Evaluation Group reviews and provides oversight of all Total Force Associations and ensures they
have met the requirements for effective operations. Force Composition Analyses examine
individual weapons systems or processes and make recommendations for an appropriate
Active/Reserve Component mix based on analysis of combat requirements, Total Force capacity,
and system and manpower costs.
Most importantly, we have strengthened and refined our corporate processes to ensure
that the Air National Guard and Air Force Reserve are involved at every step of our analysis and
decision making. Air Force senior leaders have directed that the Air Force Reserve and Air
National Guard will continue to be fully represented during system Force Composition Analyses
and will participate fully in development of the Core Function Master Plans that guide actions to
organize, train and equip the Total Force in each core function.
Air Force Reserve Component 2020 Study
We believe the Air Force Reserve Components set the DoD standard for Total Force
integration and operational effectiveness, but we must ensure that we continue to improve our
performance and processes to maximize our contribution to the Joint Force of 2020 and beyond.
The Chief of Staff of the Air Force and Reserve Component leadership are developing terms of
reference to guide an independent study that will evaluate our on-going efforts to optimize the
Total Force and make recommendations to guide and shape our future efforts. The study team
will likely be led by a former Chief of Staff of the Air Force and will include a former Director of the
Air National Guard and Chief of the Air Force Reserve.
We remain fully committed to the essential contributions of the Total Force and have taken proactive steps to:
Address the impact of force structure reductions in our Reserve Components by remissioning
units with enduring missions and assigning aircraft with extended life
spans and improved capabilities;
Plan for robust use of associations as we field F-35 and KC-46 units;
Increase the number of associations between existing Active and Reserve units;
Normalize our management of Reserve Component man days; and
Improve the transparency of Total Force planning and develop our Total Force vision for the future.
The future of the Air Force depends on sustaining strong and ready Reserve Components,
and we believe the Air Force Total Force sets the standard for integrating Active and Reserve
Components to improve efficiency and effectiveness in peace and war. The force reductions
proposed in the Air Force FY13 budget request were developed in response to new DoD strategic
guidance, informed by reduced funding, and shaped by analysis to ensure that the Total Force will
continue to fulfill the Air Force��s surge requirements and meet continuing rotational demand. We
will ensure that the Reserve Component remains engaged and relevant as the Active Component
maintains the recruiting, training, and operational seasoning base required to sustain the Total Force into the future.
Source: USAF Force Structure Changes
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