Validate the need for a J7 FDF in its operating forces
Although an FDF is not required or noted in joint doctrine at
the joint force operational levels, the WG identified a need for
a dedicated joint force staff function (e.g., J7). A J7 directorate
focused on force development could assess the mission, temper
expectation management of interested stakeholders, and assist
in assessing the HN absorptive capacity.11
Well-executed assessments provide the JFC the information to
ensure resources, personnel, funds and equipment are properly
aligned to mission requirements, which may also include, the
consideration of HN or other regional stakeholders’ requirements. Additionally, a proper assessment may enable a JFC to
recognize other capacity from other stakeholders that can be
brought to bear on the mission.
To align mission requirements, the assessment may show the
HN has neither the absorptive capacity12 to accept or take
responsibility for U.S. resources, nor possess the desire to do so.
As noted in the Burundi Lessons Learned case, nations engaged
in Security Force development, often tend to conduct “train and
equip” missions with which they are most comfortable.13 For
many nations, a “Train and equip” strategy is easier to execute.
Contributing nations can more easily measure relative success
since funding expenditures can be tied to a physical provision of
resources and services. A proper assessment of HN capability
may show a contemplated “train and equip” plan may not be
desired by the HN, or may not be financially feasible from a
prolonged sustainment perspective beyond the initial period of
assistance from the contributing country.
A JFC can use the assessments to manage expectations by
separating mission requirements from desires, or by identifying
other stakeholders, thereby ensuring no over-commitment of capabilities in support of the HN (i.e., linking an offered capability or resource with an actual or validated requirement). While
the assessment data may already show the absorptive capability
of a HN, an assessment may show the availability of Interagency or non-governmental organization partnerships to assist in
supporting the HN requirements. With the ability to foresee
available capabilities, a JFC may be in the position to efficiently
allocate resources or funding for other needs. The J7 FDF can
ensures these types of assessments and lessons learned are shared
and integrated force-wide as appropriate.
Understand and maximize the use of GFM SORs to
support SSA requirements
In order to advance the use of existing GFM SORs to support
SSA Force Management requirements, a JFC must have a J7
34
FDF to improve Joint Manning Document ( JMD) processes
in collaboration with the J1 and the J3 staff directorates.14 The
WG determined that a well-articulated and detailed JMD, or
RFF/RFA, was necessary to inform the joint force management process to provide capable SFA units, teams, and Joint
Individual Augmentees ( JIAs).15 For instance, the personnel
management SOR shows basic required information fields of
billet, grade, and skill code, but often does not identify specific
information to inform the service of the type of training or experience require