STATEMENT OF
 LIEUTENANT GENERAL EDWARD HANLON, JR.
UNITED STATES MARINE CORPS
COMMANDING GENERAL
MARINE CORPS COMBAT DEVELOPMENT COMMAND


BEFORE THE 
SUBCOMMITTEE ON MILITARY READINESS
OF THE
HOUSE ARMED SERVICES COMMITTEE
UNITED STATES HOUSE OF REPRESENTATIVES

MARCH 8, 2002 

 

                                                             INTRODUCTION

Mr. Chairman, and distinguished members of the Committee, thank you for the opportunity to appear before you today to discuss our training programs and their impact on readiness.  I am Lieutenant General Ed Hanlon, Commanding General of the Marine Corps Combat Development Command (MCCDC) located in Quantico, Virginia. 

MCCDC is responsible for developing the warfighting concepts by which the Marine Corps will organize, deploy, and employ forces within the complex environment of the 21st century.  In addition, the Command manages the development and integration of Marine Corps doctrine, organizational structure, training and education, equipment, and support facilities required to field combat ready forces for the Joint Force Commander.  This effort assesses current and future operating environments and involves continuous adaptation of training and education infrastructure and resources to ensure the integrated capabilities we develop are able to meet the challenges of those future environments.  In my testimony, I will briefly describe the Marine Corpsí training and education continuum, the process by which we make Marines and mold them into an integrated and capable combat force.  I will provide an overview of the current and anticipated changes in the operating environment that drives our training and education efforts, and provide an assessment of how our current resources are being used to meet those changes.  Lastly, I will address some of our major training initiatives.

TRAINING AND EDUCATION CONTINUUM

            Marine Corps training and education is built along a continuum that is well defined, well structured, and of which we are extremely proud.  This continuum begins the day prospective Marines report to one of our recruit depots or to Officer Candidate School (OCS), and it guides their steps until the day they depart the Corps.  It is constantly adapting to internal forces (e.g., funding availability, personnel manning levels, and societal changes, to name a few), as well as external forces and identified threats, such as those highlighted by the events of September 11, 2001.   

Our training and education continuum is comprised of five major parts:  entry-level training, common skills training, skill progression training, professional military education, and unit training.  The continuum is firmly anchored in our core competencies and the Marine Corpsí capstone concept of Expeditionary Maneuver Warfare.  

Entry-level training is a transformation process that takes Americaís sons and daughters and molds them into quality citizens and Marines capable of winning our nationís battles. This transformation process is founded upon commonly shared entry-level training experiences that begin in boot camp/OCS, continue through Military Occupation Specialty (MOS) skill training, and culminate when Marines arrive at their first operational unit.  There, they undergo training in collective skills based on tightly focused requirements defined by their unitís Mission Essential Tasks (METs). 

As Marines progress in their careers, they continue to receive training specifically designed to reinforce and supplement their MOS skills.  They also receive professional military education commensurate with advances in rank to increase their understanding of warfighting.  Increasingly, as they move along the continuum, Marines focus less on individual skills and more on collective and unit-level skills, with emphasis on their role as part of a Marine Air Ground Task Force (MAGTF). 

            To coordinate and synchronize the multitude of training and education programs throughout the continuum, we established the Marine Corps Training and Education Command (TECOM) within MCCDC in July 2000.  In establishing TECOM, the Commandant created a single headquarters to ensure his Title X responsibilities are met.  This headquarters commands our recruit depots, all of our MOS producing schools, the Marine Corps University, Marine Aviation Weapons and Tactics Squadron at Yuma, AZ and the Marine Air Ground Task Force Training Command at 29 Palms, CA.    

            Our efforts have significantly enhanced our ability to make Marines and build effective operational units.  Our recruiters are obtaining the quality people we need, and we have intensified and strengthened the transformation process to ensure our Marines are ready to meet the demands of an ever-changing operational environment.  Let me now address that environment and, in particular, the changes that have occurred since September 11, 2001.

OPERATIONAL ENVIRONMENT

The operational environment greatly affects how we plan and execute our training and education programs.  In particular, the factors of uncertainty, complexity, and the increasing concentration of the worldís population within littoral and urban environments impact our continuum.  The combination of these factors results in a marked increase in the number and types of tactical and operational tasks Marines must be trained to execute. 

In the current and foreseeable operational environment, we do not have the luxury of facing a single threat to our security and well-being.  Just as the fall of the Berlin Wall and the subsequent collapse of the Soviet Union necessitated a reassessment of the threats facing our Nation, so too have the events of September 11, 2001.  Uncertainty predominates as to who poses a threat, when they might strike, and the manner in which they might attack us.  Our Nationís enemies recognize our strengths and therefore seek to hurt us in ways that strike at our vulnerabilities.  On September 11th we saw a tangible example of just such an asymmetric attack.  Future adversaries will attempt to do the same, leveraging readily available technology and striking at those areas of greatest weakness. 

              Along with uncertainty, complexity clouds our current operational environment.  Our operations in Somalia, Haiti, Kosovo, and now Afghanistan clearly show that our forces must be prepared for more than conventional combat operations.  We saw a wide array of regional, international, governmental, and non-governmental organizations interacting with each other while pursuing their own interests.  Military and para-military forces, whose goals and loyalties shifted from day-to-day, made it difficult to discern friend from foe.  In the midst of this, civilians clamored for our aid and protection.  This translated into the type of complex contingency that Marines refer to as ìthe three block warî.  A ìwarî in which our Marines may have to offer humanitarian assistance on the first block; separate warring factions on a second block; and in a third block engage in a vicious, close-in battle against determined adversaries.

            The factors of uncertainty and complexity are further exacerbated by the likelihood that future conflicts will take place within the confines of urban complexes.  The continuing migration of the worldís population to large urban centers means conflict will be multi-dimensional: at, above, and below the street level.  It will mean civilian non-combatants will be an ever-increasing and constant concern to our Commanders.  Furthermore, our forces will experience increased scrutiny from the worldís press and governments, while at the same time feeling mounting political pressure to limit collateral damage and ensure the well being of these non-combatants.

            Success in this environment will require MAGTFs fully trained to perform a broad range of capabilities that enable them to respond to a multitude of demanding situations.  Additionally, they must be capable of interacting with other Services in a joint environment, as well as with allies during combined operations.  They must also be able to leverage the available capabilities and services of governmental and non-governmental agencies to achieve success.

While the current war on terrorism demands our focus, we must not lose sight of the fact other threats exist.  Combating these threats will demand the use of a wide range of capabilities to achieve our strategic, operational, and tactical goals.  In some instances, coalition forces may be able to play a role as they have in Afghanistan.  For others, victory may only be achieved through the use of large numbers of US forces in conjunction with allied nationsí forces or through unilateral action.  In this dynamic environment there is one certainty: we will change the Marine Corps training and education continuum as needed to provide Marines capable of meeting these diverse and challenging operational environments. 

            Marines have always prided themselves in their expeditionary competency and tactical flexibility.  These attributes enable us to offer Joint Force Commanders scalable and tailorable forces capable of being rapidly integrated in a short-notice contingency.  For instance, following the events of September 11th, forward deployed Marines of the 15th and 26th Marine Expeditionary Units were quickly employed in Afghanistan as part of a Joint Combined Task Force.  These two organizations, belonging to different commands, based and trained on separate coasts, were rapidly integrated into one expeditionary brigade-sized MAGTF while on the scene, in order to expand the capabilities and options for the Joint Force Commander.  The tactical flexibility they brought to the conflict and their ability to rapidly adjust to the changing nature of the war reflects well on Marine training and education programs.  The success of these Marine units in this difficult and challenging environment was a direct result of the tough, realistic, and relevant training the Marine Corps continues to provide to its operating forces.  It is this type of training that will ensure our success in future conflicts.

ASSESSMENT

            Having reviewed for you our training and education continuum and the environment in which we must prepare our Marines to operate, I will now address how we are doing in some critical areas that go to the heart of our ability to provide those combat ready forces. 

Let me begin by stating that overall our training and education continuum and the programs supporting it have the resources necessary to accomplish their mission.  In the area of funding, we are unequivocally in much better shape than in recent years.  This trend continues with our FY-03 budget, wherein the Marine Corps top line increased by more than 16% over the FY02 level.  This translates to more Operations and Maintenance (O&M) funds available for training at our operating units as well as our schools.  In addition, we should see increased funding for attendance at formal schools.

            With regard to instructors, training equipment and operating costs, the same applies.  The Marine Corps has always recognized that our schools are an investment in readiness.  As such, we strive to maintain a 95% instructor manning level at our schools, and for the most part, we succeed.  In large part, many of the instructors are hand picked for these challenging assignments.  Following an instructor tour, they return to the operating forces ready to impart the fresh knowledge they have gained.  With respect to equipment, we ensure Marines receive instruction either in the actual equipment they will see at their operating units or in simulators that faithfully replicate these systems.  To ensure this, TECOM works closely with the Marine Corps Systems Command so that our schools and training facilities are prepared to meet the training requirements for new equipment.  

Through the use of outsourcing and our ongoing A-76 studies, we also are taking steps to ensure the most effective use of our resources.  Where prudent, we use civilian contractors to provide specialized training support for our training and education establishment.  For instance, due to the unique nature of its equipment, much of the training for our Chemical Biological Incident Response Force (CBIRF) is provided by civilian contractors.  Also, we make extensive use of contractors to manage and operate our simulators, training devices, ranges, and various support functions, thus freeing Marines for other critical jobs.   

Facilities, however, are one of the areas where I do have some significant concerns.  Even though, with the help of Congress, we have been able to invest over $53 million in construction for training facilities between fiscal year 2000 and 2003, our training facilities, like many others in the Marine Corps, continue to be a collection of the new and ancient.  The Marine Corps Combat Services Support School, Camp Johnson, Camp Lejeune, NC has one funded construction project for a Consolidated Academics Facility.  Funding for a new Basic Reconnaissance Course training facility at Expeditionary Warfare Training Group Pacific, San Diego, CA has been approved and is in process of replacing existing WWII era facilities.  This year we are proposing new Recruit Training facilities at Parris Island.  Outside of the construction arena, stopgap funding has been provided to maintain Basic Reconnaissance Course training facilities at Expeditionary Warfare Training Group Atlantic, Norfolk, VA.  Still on our plate are facilities dating back to pre-WWII such as the Field Medical Services School, the School of Infantry, and the Marine Corps Engineer School ñ all located at Camp Lejeune.  Camp Pendleton has similar shortfalls for its Field Medical School.  At our Officer Candidates School in Quantico, 1940ís era temporary metal buildings continue to house academic facilities. 

While these shortfalls have not prevented the schools from executing their training requirements, lack of desired funding requires, in many instances, that training continue in deteriorated facilities.  Many of these facilities are not habitable, are ill suited to accommodate the technology necessary for effective instruction, and most do not support the professional environment in which we want to train our Marines. 

            Let me now turn to another critical issue affecting training in the Marine Corps: encroachment.  We are increasingly finding that the ability of our operational units to conduct realistic and effective training is degraded by the many forms of encroachment at our bases and stations.  I know the members of this committee are no strangers to the issues of encroachment, but I would be remiss if I did not take this opportunity to review this major issue and its impact on training.

            The Defense Test and Training Steering Group, with input from all the Services, defines eight areas of encroachment that impact the training and readiness of our forces.  The cumulative effect of these encroachment areas on any given range or training area may preclude realistic training or prevent training altogether.  I will condense these eight areas into four broad categories and address each of them.  They are Urban Growth, Environmental Regulatory Encroachment, Airspace Encroachment, and Frequency Encroachment.

Urban Growth

Many of the encroachment issues (noise, airspace, endangered species, frequency encroachment, and environmental regulations) result from, or are subsets of, population growth and urbanization.  As communities grow toward the boundaries of ranges and installations, land use incompatibilities emerge.  These incompatibilities can compromise the health, safety, and welfare of both military and civilian sectors.  Often, residents file lawsuits against military installations with the goal of reducing installation operations (such as aircraft operations or weapons firing) because they feel these operations have impacted the value, or restricted the use of, their property.  When land use conflicts emerge, the military often loses operational efficiency, operational capacity, and future mission flexibility.

As the former base commander at Camp Pendleton, I will offer that base as a prime example of a critical training facility faced with many urban growth encroachment issues. The state of California continues to experience extraordinary growth.  Within the last 5 to 7 years, housing developments have either been approved for construction or built in the surrounding communities of Oceanside, Fallbrook, and San Clemente.  At Camp Pendleton, the Marine Corps has been threatened by lawsuits by the city of San Clemente and a private citizen group called Homeowners United to Stop Helicopters (HUSH); their objective is to stop construction of the new 3,000 foot helicopter landing field on Camp Pendleton.  Pressure from the public is increasing because the last BRAC relocated air assets from Marine Corps Air Station (MCAS) Tustin and MCAS El Toro to MCAS Pendleton and MCAS Miramar.  As a result of the relocation, the Marine Corps now conducts more flight operations, in a smaller geographic area with a higher population density.  This situation is a source of on-going noise complaints and friction with the local community and will not likely abate in the future.  For instance, San Diego County alone will likely add another projected 1.4 million people in the north county area within the next 20 years.

Environmental Regulatory Encroachment

         The Marine Corps is fully cognizant of its responsibilities as steward of the lands that are entrusted to our care.  Military lands provide habitat for over 300 Federally listed threatened or endangered species requiring protection under the Endangered Species Act (ESA).  Many of our installations are surrounded by urban development, and frequently they are the only large undeveloped areas remaining to support endangered species habitats.   As such, we work hard with Federal, state, and local agencies to ensure our compliance with existing laws and to take the necessary steps to safeguard the natural environment lying within, and adjacent to, our military installations.  Despite our environmental efforts, operational training requirements sometimes place us in conflict with various regulatory requirements.  

               Compliance with environmental regulations, such as those protecting endangered species, mandating noise abatement, or specifying requirements for air or water purity, can sometimes restrict our ability to train.  Where possible, we work around these restrictions by modifying the timing, tempo, and location of training, as well as the equipment used.  However, these workarounds are increasingly difficult, costly, and compromise the realism essential to effective training.  In order to gain a better appreciation for the impact on training of these restrictions we recently undertook a study at Camp Pendleton.  The early results of this study suggest that less than two-thirds of required combat arms training events can be accomplished in realistic scenarios.  We believe it is important to ensure a balanced approach between environmental concerns and military readiness needs.

Airspace Encroachment

Although military force structure and total flying hours have decreased over the past ten years, DoD has a continuing requirement for airspace designed to satisfy its needs.  DoD special use airspace is necessary to conduct critical equipment testing and required aircrew training.  At the same time, fueled by deregulation and relatively affordable fares, the civil airline industry has grown steadily.  The projected growth rate of this industry, although perhaps abated at present due to the events of September 11, 2001, will result in an increase of passengers from 600 million last year to an estimated 1 billion passengers in 2010.  Furthermore, that growth is expected to continue at a 6% rate for the foreseeable future.  In 1998, the Federal Aviation Administration (FAA) initiated the National Airspace Redesign (NAR) program to review the design of all national airspace resources and ensure the effective and efficient management of the national airspace.  The goals of the redesign program are to maintain system safety, decrease system delay, and to increase system flexibility, predictability, and user access.  Therefore, we must engage in the NAR process to ensure that the FAA incorporates DoD requirements into the new system, providing the military airspace required to prepare units for combat.  

Frequency Spectrum

The growth of consumer communications devices since the 1980's has resulted in pressure from the telecommunications industry for the reallocation of the radio spectrum from Government to non-Government control.  As a result, since 1992 DoD has lost approximately 27% of the total spectrum allocated for aircraft telemetry, with varying degrees of impact.  Some of the reallocations have resulted in operating restrictions at specific locations.  Others have resulted in DoDís complete loss of access to specific frequency bands.  The telecommunications industry continues to seek use of spectrum currently used for Federal purposes, including that of DoD activities.  One response to this problem is to seek greater efficiency in all partiesí use of the spectrum.  As the demand for spectrum grows and greater sharing of spectrum occurs we must devise new methods of spectrum utilization.  While we pursue these new methods, DoD is a full participant in the policy deliberation on future spectrum reallocations.

Our Commandant has referred to our bases and stations as the ìfifth element of the MAGTFî, since they are the platforms wherein we train our Marines and from which we launch our MAGTFs.  To perform this function they must offer our units the ability to train in realistic environments in the air, on land, and sea.  Our MAGTFs must have the ability to train, in partnership with the Navy, as a single, cohesive entity.  Increasingly this is becoming more difficult to do.  As we lose access to key training areas due to encroachment, we are forced to train in a piecemeal fashion with related training events separated by time and space; often unable to ìtie it all togetherî prior to force deployment.

Regardless of the aforesaid encroachment challenges, I want to assure the members of the Committee that the Marine Corps continues to embrace its roles as steward of the environment and servant of the people seriously.  Commanders at all levels continue to reach out to local communities and to federal and state agencies seeking common ground to mitigate the impacts of growth and other obstacles to training in our quest to remain combat ready.  We are supportive of the initiatives DoD has taken to come to grips with these issues affecting the readiness of all the Services, and we participate actively in DoDís environmental programs.  Additionally, the Administration is in the process of identifying ways to sustain the readiness of our forces, and is working on a legislative proposal that will likely include provisions to clarify ambiguous statutory and regulatory requirements.

We also recognize that much of our concern about encroachment pressures and their direct relationship to our training is subjective, and much of our evidence anecdotal.  To help us better quantify the capacity of our ranges to support essential training and to streamline Marine range management, we have established the Range and Training Area Management Office within the Marine Corpsí Training and Education Command.  One of the missions of this office will be to provide us the cost, in terms of training capabilities, associated with the loss of access to specific ranges or training areas.  It will allow us to recognize when an impediment to training becomes a decrement to readiness.

INITIATIVES

            We are pursuing other initiatives to further increase the effectiveness of our training and education system.  I will focus on four major areas:  distance learning/advanced distributed learning, simulators and simulation, the future of our Marine Air Ground Task Force Training Command (MAGTFTC), at 29 Palms, CA and finally specific training initiatives we have undertaken since September 11, 2001.

Distance Learning/Advanced Distributed Learning

Our efforts in Distance Learning / Advanced Distributed Learning are a means to exploit advances in technology in order to meet two different objectives.  First, we are using Distance Learning to fill the gaps in both professional and supplemental skills development in our training culture.  Intermediate level professional military education is one targeted area.  Due to school seat limitations, career progression, and timing, not every Marine officer is able to attend a resident school.  This gap is being met by correspondence courses available through the Marine Corps Institute, instructor-led seminars available at the Marineís duty station, and, in the future, supplemented by distance learning courseware.  This model will be used to provide effective alternatives to resident education and ensure our Marinesí professional and supplemental skills remain current.  Secondly, we are using Distance Learning to supplement and replace formal training in our schools where effectiveness can be enhanced and cost efficiencies achieved.

Having said that, I must emphasize one point.  While distance learning offers many opportunities, it does not always offer the total solution to meeting training requirements.  For example, distance learning has great application when used to teach some technical skills; however, training Marines in other skills like driver training, weapons handling, and flight training cannot be met solely by distance learning.  When compounded with the high cost of producing distance learning courses, this means we must be judicious in applying this technology.  Accordingly, we envision our brick and mortar schools will continue to serve in their traditional capacity for the foreseeable future.  Within these constraints, we are aggressively moving forward with distance learning systems to export as many courses as lend themselves to the application of this technology.  This will enable us to deliver training and education to our Marines where and when it is needed.   

Simulators/Simulation

The Marine Corps uses training devices and simulation to enhance our live training activities.  However, we do not envision the use of simulation to replace live training.  When live training cannot be conducted, simulation provides the ability to slow or prevent the atrophy of cognitive skills and reduce the impact of lost live training on warfighting capabilities.  For example, once a Marine Expeditionary Unit (MEU) is deployed aboard ship, simulation can significantly help to preserve the MEUís warfighting skills until actual unit training can be conducted ashore. Virtual and constructive simulations also enhance live training by offering the ability to train individual and unit skill-sets with less (time, space, fiscal) cost.  Virtual and constructive simulation will enhance realism during training exercises and better prepare Marine leaders in the dynamic decision-making required in the 21st century.  Virtual simulation incorporates the use of a simulator to provide a realistic environment to train specific skills prior to applying those skills in a live environment.  We use constructive simulation to train teams and staffs.  Constructive simulations utilize representations of forces and the environment to provide either aggregated or entity level behavior and performance feedback.  In sum, our simulation-based training initiatives are meant to exploit advances in technology. Simulation increases and improves training and education opportunities, increases readiness, makes training readily available, and decreases costs.  Simulation will not replace field or live-fire training, but it will help Marines prepare for more costly and demanding live training events and minimize skill atrophy when live training is not possible.

MAGTFTC

Marine Air Ground Task Force Training Command (MAGTFTC), located at 29 Palms, California, is the Marine Corpsí premier training center for live fire, combined arms training.  It will continue to play a central role as the Corpsí foremost training and testing site for Expeditionary Maneuver Warfare.  Ongoing initiatives will expand the role of MAGTFTC and transform it into the ìMAGTF Training Center of Excellence,î enabling it to facilitate and support the development of new concepts and capabilities that reinforce the Marine Corpsí combat effectiveness, while enhancing joint interoperability and supporting DOD transformation efforts.

The future role of MAGTFTC will grow beyond its current emphasis on battalion level live fire combined arms training to support expanded training opportunities for all the elements (ground, air, logistics, and command element) of a MAGTF, up to and including a Marine Expeditionary Brigade (MEB).  Several efforts are currently underway to exploit and realize the full potential of MAGTFTC.  These efforts include: enabling multi-site, distributed training evolutions that tie together units from various bases, and investing in technology that simultaneously links live, virtual, and constructive training to create more realistic training scenarios for all Marine Air Ground Task Force elements.  Additionally, improvements to the existing Expeditionary Air Field (EAF), construction of a large-scale Military Operations in Urban Terrain (MOUT) facility, and the acquisition of additional land are being studied as possible ways to enhance training opportunities at 29 Palms.  All of these efforts have the potential to exponentially increase the capability of MAGTFTC to support evolving and future MAGTF training requirements.    

Other Initiatives Since September 11, 2001

Since September 11, 2001 and the subsequent operations in Afghanistan, all of our schools and training sites have undertaken a systematic examination of their curriculums to identify areas where they can support the war on terrorism.  At our Engineer School, for example, a think tank was instituted whereby current events were studied and courses of action and tactics, techniques, and procedures were generated for likely scenarios, i.e., cave warfare, mine warfare, expeditionary airfields.  Operating forces are able to use the school as a reach back capability, using this information to help them prepare for the conduct of combat operations.  

Immediately following the attacks our Commandant, General James Jones, foresaw the need for a rapidly deployable, specially trained, and sustainable force to detect and deter terrorist activities, defend designated facilities against terrorist attacks, and conduct initial incidence response in the event of chemical, biological, radiological, or nuclear terrorist attacks.  To that end, the 4th Marine Expeditionary Brigade (Anti-Terrorism) was formed at Camp Lejeune, NC combining our Chemical Biological Incident Response Force (CBIRF), Marine Security Guard Battalion, Marine Corps Security Force Battalion, and an infantry battalion under a single headquarters.  Here again TECOM provided invaluable support in helping define the mission, developing Mission Essential Tasks (METs) and identifying the training tasks necessary to support those METs.

CONCLUSION

In conclusion, the Marine Corpsí training and education continuum is dynamic, responsive, and effective.  It allows us to make Marines with the skills, character, and warrior ethos necessary for success in current and future operational environments.  It ensures that our MAGTFs are highly trained and ready to respond to any number of contingencies, across the full spectrum of military operations.  With your continued support, we will continue to provide the best possible programs so that our training and education continuum continues to deliver what the nation expects ñ Marines and Marine forces ready to win our Nationís battles.  

I thank you for this opportunity to present my views and look forward to your questions. 


House Armed Services Committee
2120 Rayburn House Office Building
Washington, D.C. 20515