Current commentators consider the combination of collisions, groundings, and senior reviews of 2017 to be a watershed event for the Surface Warfare community. Rather than a wakeup call for the community, 2017 should be viewed as a culminating point for the Surface Warfare community overall and the Surface Warfare Officer (SWO) culture in particular. Just as Napoleon’s policy objectives failed to bring Europe under his rule, despite brilliant military victories,1 many post-Cold War policy decisions for the Surface Warfare community, as admitted by past and current leadership, were misinformed. In some cases, they appear to have done more harm than good to the Surface Warfare community. More importantly, those changes in policy drove changes in the SWO culture. And, while many people debate the merits of some of those earlier policy decisions, the debate is lost in the fog and the SWO community is missing the real opportunity to reclaim its warfighting excellence by recreating the culture which led to victories within the last century in the same waters in which sailors died in 2017.
By identifying the warfighting traits the community believes necessary to lead, fight, and win at sea, by developing a modern approach to promotions and assignment processes, and by leveraging readily available techniques and solutions in use by leading industrial sectors,2 the SWO community can return to a culture built on warfighting competence and professional proficiency – excellence – that it once exemplified as it stood as the premier community in the Navy. This is no small task. But it is readily doable and doable in short order.
Leveraging Modern Techniques And Solutions To Restore SWO Warfighting Excellence
The national and global competition for talent in business, industry, and academia has driven the development of a variety of techniques and solutions to help organizations win the competition. Current techniques and solutions include compliance with federal and state job application laws, tailored machine reading, and the ability to develop specific questions or processes in an effort to find the right talent. Applicants build their profile and post or submit their resume. Depending on the traits the customer is looking for, applicants are screened. If their profile and resume are assessed to not meet the desired factors, applicants are notified by email that they are no longer needed to participate in the screening process. Or, if they score high enough, applicants may be required to participate in another level of screening in the form of a battery of questions or other online exercises – all before a single human has reviewed their submission. Of course, articles abound about how inhuman and unfair the process has become. However, more and more talent is migrating to these online processes to find employment and more and more organizations are paying for these services in order to win the competition for talent. These existing techniques and solutions could be applied to improve and align warfighting skill sets and proficiency for the SWO community.
Developing the Warfighting Trait Model
For starters, past naval heroes were not rated by the same processes used today. However, unstructured data in the form of biographies, articles, battle reports, and other sources can be processed using current cognitive processing methods to glean or extract a set of character traits common to those past naval heroes deemed to have exhibited warfighting excellence. In parallel, a cadre of junior officers, with very few select retired flag officers as advisors, can separately develop a set of warfighting traits.3 It is essential that the ideal of warfighting excellence is captured by this group. Once both sets of warfighting traits are generated, they are then synthesized into a single warfighting trait model that would exemplify an individual with premier warfighting excellence. With the ideal trait model in hand, the Surface Warfare community can then embark on “scoring” individual warfighting proficiency reflective of its officers’ performance.
Scoring Individual Warfighting Capability
Returning to warfighting excellence to reinvigorate and restore the SWO culture may necessitate a reconsideration of not only the factors by which warfighting excellence is determined but also an expansion of the data set from which those factors are pulled. The existing performance evaluation system and its fitness reports, and how they are used, do not meet the need and do not drive warfighting excellence. Fitness reports serve a purpose and can continue to serve as one source of data for an officer’s performance. However, there are a myriad of unique and high performing skills demonstrated daily in the fleet. Yet, the proficiency with which those skills are performed is not assessed or recorded. Reportedly, every landing onboard an aircraft carrier is an opportunity to rigorously and objectively score the pilot’s performance, and provide critical feedback in the performance of this critical warfighting skill. The Surface Warfare community should immediately adopt an approach similar to that used by Naval Aviation.
For example, the shiphandling skills necessary to get a ship underway may be observed or scored during the Basic Phase or periodically in a simulator, but there are dozens more special details which are not required to be scored. Similarly, ships routinely go alongside for underway replenishment, but this opportunity is lost for assessing shiphandling proficiency.
In a healthy command, the plan-brief-execute-debrief (PBED) process is alive and well, but scoring against community-wide professional standards does not exist. Establishing such standards and scoring an officer’s performance to those standards would contribute to establishing officer’s warfighting capability and proficiency scores. Table 1 lists some of the means to establish an officer’s warfighting scores.
Some aspects of the warfighting scores would necessarily have a temporal component as proficiency degrades over time, especially time spent away from the waterfront. For example, an Executive Officer (XO) who last took a ship alongside for replenishment at sea four years ago would (and should) have their warfighting capability score appropriately degraded. All things being equal, the XO who went alongside yesterday is likely to be much more proficient at that skill than the XO who went alongside four years ago.
Consider other Navy communities such as Explosive Ordnance Disposal (EOD), Divers, and Aviators. They all have skills that have an “expiration date.” In order to maintain proficiency and prevent triggering a requalification requirement, the skill must be demonstrated at some objectively established periodicity. While the periodicity can be lengthened such that the importance of the qualification is diminished, it must be a consistent standard to restore the warfighting excellence of the SWO community. If maintaining proficiency in basic shiphandling evolutions really is important to the SWO profession and culture, then SWOs will necessarily spend some of their shore duty in shiphandling simulators for their periodic assessments and community leadership will resource the requirement. Going to the Joint Staff for a 22-month tour will not be an excuse for not maintaining proficiency in warfighting skills.
Also listed in Table 1 are those methods that are available to and fully within the purview of a ship’s Commanding Officer (CO). This should help alleviate any concern the community might have on eroding the CO’s ability to lead or develop their wardrooms. While most of the methods are self-explanatory, it should be noted that the scores achieved during the Basic Phase are absent. Fundamentally, the Basic Phase is a training event. As such, introducing those scores into an officer’s warfighting capability score could diminish the training opportunity. In other words, activities that are primarily for training must be treated as such allowing mistakes to be made and learning to occur without concern about an officer’s warfighting capability score. Additionally, a CO’s assessment averages, just as with fitness reports, would need to be tracked as a forcing function to prevent inflating scores.
As an officer approaches a career milestone, such as a selection board or a slate, their warfighting capability score firms up and is then compared to the warfighting trait model. It is this comparison that determines their ranking within their respective cohort. For a selection board, this rank determines whether or not they are selected. Gone are the days where careers are determined by a system which is “as fair and unfair to everyone equally.” A bad briefer will not send the community’s best to “the crunch.” The Board members will know the warfighting trait model and they will be able to see the officer’s score against that model. They will see the score trends over a specific assignment and throughout the officer’s career. This way, warfighting competence and professional proficiency become the primary determinants for selection and assignment.
While most of the discussion has been focused on the determination of an individual’s warfighting capability score and proficiency, similar approaches can be used to assess shipboard teams and the ship as a whole fighting unit.
Slating For Unit Warfighting Excellence
Another benefit of knowing an individual’s warfighting capability score is developing slates which better support the fleet’s warfighting readiness needs by ensuring a ship’s overall warfighting capability score remains above a minimum level through slating officers to that ship using their warfighting capability scores.4 Consider that when a group of individuals come into their slating window, their warfighting capability score is again determined. The group is then ranked and divided into top, middle, and bottom thirds (or quarters). For example, a prospective Department Head who ranks in the top quarter will get slated to a ship where the current Wardroom’s overall warfighting capability score indicates they could use some talent. Of course, there is risk that an officers’ duty preferences will not align with the fleet’s needs, but that issue exists today and will continue to require the same quality engagement by community leaders. Detailers will still need to understand factors listed in Table 2. While Table 2’s factors are important to an officer’s quality of service, they are not factors for determining warfighting excellence. By grouping a slate by quarters or thirds, flexibility is created which allows accommodating factors in Table 2. But, the entering argument for the entire officer slating process is warfighting capability and professional proficiency.
The existence of a strong, objective warfighting excellence scoring system would allow the Surface Warfare community to manage warfighting capability within individual ships and across the fleet. It will provide a means by which the performance of individual ships and the fleet can be improved.
Things to Guard Against
The process of driving the SWO culture back to warfighting excellence and professional proficiency will be challenging and there are those who will fight the change tooth-and-nail. Senior officers will see this as an attack on “their Navy.” Detailers will see this as a challenge to their primary activities. Senior mentors and advocates will see this as an affront to their mentoring and their confederation of mentees. Some will see this approach as a challenge to various support organizations external to DON, such as the Surface Navy Association. Many will immediately start looking for ways to game or manipulate the system, eroding its effectiveness. These things must be anticipated and guarded against as a new process that attempts to change culture will have to face friction posed by existing culture.
If SWO warfighting excellence is the reason that the Surface Warfare Community exists, and if warfighting competence and professional proficiency is the critical need for the current and future maritime warfighting environment, the SWOs must rise to the challenge. By leveraging modern techniques and solutions to develop an objective and rigorous system of assessing warfighting capability for SWOs throughout their career, and by using the warfighting capability scores to make warfighting competence and professional proficiency the centerpiece of promotion and assignment, the SWO community will realize its greatest potential and return to a level of professionalism not seen since the end of World War II.
Themistocles is a pseudonym whose choice is intentional in order to focus on the subject of the article rather than the author. There is also the parallel in the choice of Themistocles that, while some of the ideas presented may not be popular with the establishment, the discussion and discourse prompted by these ideas may again assist in establishing the preeminence of the naval power of the world’s greatest democracy. Statements and opinions expressed in this article represent personal views and not that of the DoD or DoN.
Weldman, Thomas. War, Clausewitz and the Trinity. New York: Routledge, 2013.
 Weldman, War, Clausewitz and the Trinity, 79.
 While there is a vibrant debate about what is and what is not ‘artificial intelligence’, ‘machine learning’, and other relatively new terms, this paper focuses on the fact that there are modern techniques and solutions available rather than attempting to define terms which are new, changing and not yet agreed upon by the wealth of experts debating them.
 The involvement of and control by current flag and senior naval officers in articulating this set of warfighting traits must be purposefully limited so that an independently developed set of traits can be achieved. The concern is that traits which may have contributed to the current culture will be captured inadvertently. Additionally, the flag officer advisors’ role is to guide the junior officers and constructively challenge their ideas to strengthen their product. The flag officer advisors to have no veto over or approval authority regarding the junior officers’ results.
 A unit’s overall warfighting excellence score has further implications in how and when they are employed by operational commanders. However, those possibilities are not discussed here in order to keep the discussion focused on improving the SWO culture.
Featured Image: Pacific Ocean (April 21, 2018) USS Stockdale (DDG 106) fires its Mark 45 Mod 4 5-inch gun during a live fire exercise as part of a Cruiser-Destroyer (CRUDES) Surface Warfare Advanced Tactical Training (SWATT) exercise. (U.S. Navy photo by Mass Communication Specialist 2nd Class Amanda A. Hayes/released)
Rapid technological advancements and the re-emergence of near peer competition require that we continue to invest in high end tools – platforms, weaponry, and sensors. Equally important are the tactics to employ them and the associated training investment we must make in today’s warfighters and future leaders in the Surface Warfare Officer (SWO) cadre. The centerpiece of an amped-up warfighting culture in surface warfare is the Warfare Tactics Instructor (WTI) program, available to all division officers, department heads eligible for shore duty, and a small number of limited duty and chief warrant officers.
The ideal onramp into the WTI community is during the first shore tour following completion of at-sea division officer assignments. This timing allows the WTI program to fit neatly in a career pipeline. Three attributes set the WTI program apart: the opportunity to develop expertise in areas the Navy needs, exposure to exclusive professional development opportunities during the readiness production tour and throughout a career, and the empowerment to make significant contributions at a very junior level.
The ability to develop confidence through professional expertise early in a career has a profound accelerating effect on an officer’s development, and directly contributes to a sense of purpose and fulfillment. WTIs are afforded the time, resources, and experience-building opportunities they need to learn while making substantive contributions to tactics and warfighting proficiency.
The WTI program offers a gateway for young officers to develop deep tactical expertise in the fields of Integrated Air and Missile Defense (IAMD), Anti-Submarine/Surface Warfare (ASW/SUW), and Amphibious Warfare (AMW). Each field begins with a two week Instructor and Tactics Course (ITC) followed by a tailored, 14-16 week course of instruction. During this instruction period, prospective WTIs are mentored and coached to develop their skills at leveraging the Plan, Brief, Execute, and Debrief (PBED) methodology for rapid learning. Following this training, WTIs complete a 24-month “readiness production tour” at SMWDC headquarters or one of four SMWDC Divisions – focused on Sea Combat, IAMD, AMW, or Mine Warfare – or selected training commands (CSG-4/15, TTGP/L, ATG, CSCS, or SWOS, to name a few). During this tour, WTI skills are matured both in the classroom – and at sea – during Surface Warfare Advanced Tactical Training (SWATT) and other fleet training events.
Learning by Teaching
The emphasis on teaching as a basis for learning is based on an idea espoused by the Roman philosopher Seneca, who declared, “docendo discimus” or, “by teaching, we learn.” This model of learning is also used to develop WTI candidates, which is why instructor skills are a main focus of ITC. Quality of lesson delivery is established through a rigorous standardization process that must be completed for each lecture delivered by a WTI. It’s not uncommon for a WTI to invest weeks or months of research, as well as conduct numerous “murder boards” with fellow WTIs, technical experts, and senior officers, before presenting at the podium. The process is meant to maintain a high standard of instruction where WTIs have established mastery of content and exhibit confidence in delivery.
Focused Specialty Areas
During initial WTI training, students are assigned relevant tactical projects that match critical fleet needs and account for student interests. Projects often involve new technology or capability that must be thoughtfully and effectively integrated into maritime warfare doctrine. Other projects center on updating existing doctrine or repurposing existing systems in new and innovative ways. Specialty areas and projects are assigned based on WTI preference and crosscut broadly, from high-end tactics to training systems and learning science.
Focus area research often extends past initial WTI training, into subsequent readiness production tours, and beyond. SMWDC provides mentorship, applies resources, and opens doors to connect WTIs to thought leaders, technical community experts, industry partners, and community leaders to develop their specialty area work.
Coaching and Training Skills
WTIs are the core workforce of SMWDC’s advanced tactical training at sea. They rely on replay tools that include systems data, voice, and other information to rapidly build ground truth and facilitate debrief sessions. Equipped with irrefutable data on what really happened, the “I thought” and “I felt” ambiguities are driven out of the debrief process, enabling shipboard watch teams to learn and grow together more rapidly.
The combination of WTI knowledge, replay-assisted PBED, and specialized training focused on team dynamics and coaching skills offers a powerful method for improving learning across the fleet. The aim is to create an environment of transparency and mutual trust among watch team members, where Sailors enter debrief sessions eager to identify their own shortfalls in order to improve team and unit performance.
At-sea training allows WTIs to observe multiple ships and teams across a variety of training and operational circumstances. The WTIs gain practical insight into how doctrine plays out on the deckplates, as well as hone their ability to identify team performance issues during at-sea training. While the immediate objective is to improve tactical proficiency and unit performance, the skills WTIs gain are extraordinarily useful in future roles as department heads.
The final link in WTI expertise development leverages the strong partnership between SMWDC and the technical community. Our ability to measure and analyze performance among units is a challenge due to complex weapons systems, ship configuration variance, and the number of watchstanders distributed in different controlling stations. To build a clear picture of how tactics, training, and systems converge into warfighting capability, a detailed event reconstruction must take place that considers system actions, operator actions, and tactics.
Naval Surface Warfare Center (NSWC) Corona, Naval Undersea Warfare Center (NUWC) Keyport, and SMWDC have developed a Data Analysis Working Group (DAWG) to conduct performance analysis of SMWDC training events. The intent is to extract empirical, data-driven insights from the careful analysis of systems, operators, and tactical performance.
The process is laborious, but straightforward. Following at-sea training, event data is extracted from unit combat systems and sensors and then brought to NSWC for detailed analysis. Following initial analysis from the technical community, WTIs and SMWDC leaders stand up a 1-2 week DAWG event.
By examining system performance, operator performance, and tactics as a consolidated effort, the process can lead to discoveries not captured by direct observation – system anomalies, operator actions, and flaws in tactics. Findings and lessons learned can be very useful because they are underpinned by empirical data and technical analysis. To date, more than 40 weapons system performance anomaly reports have been generated from DAWG events. Systems issues have been identified and funneled to the appropriate technical community to resolve, tactics have been updated, and numerous operator performance issues have been provided to the training community as opportunities to grow or strengthen curriculum. This allows SMWDC to advocate for tactical updates among partner warfighting development centers and provide feedback to the TYCOM and Surface Warfare training enterprise.
For the WTI, immersion in performance analysis activity with civilian technical experts offers a unique lens into how weapons systems, operator performance, and tactics are all linked to create combat potential.
Because the program is highly sought after by driven, focused professionals, the majority of WTIs are on track to return to sea as department heads. Notably, WTI cadre retention is double historical averages in the Surface Warfare community at roughly 70 percent. WTIs heading back to sea have a notable advantage given the training they receive and the experiences they gain at a formative stage of their career that others simply do not.
Similar to officers with other subspecialty skills – Nuclear Program, Financial Management, Operations Analysis, and Space Systems – WTIs have unique skillsets based on their focus areas. For example, IAMD WTIs in readiness production tour billets at the Naval Air Warfare Development Center in Fallon, Nev., have completed the Carrier Airborne Early Warning Weapons School, becoming dual-patched WTIs. These officers are among very few in the Navy with expertise in Integrated Fire Control (IFC) from both the Aviation and Surface perspectives.
To maximize the return on investment for these unique WTI skills, SMWDC is closely aligned with PERS-41 in the distribution process, ensuring future assignments leverage these strengths (e.g., assigning a WTI with IFC expertise to IFC-capable units). While assignments will always consider many variables, this close relationship ensures WTI experience and skills are considered during the assignments process.
WTI training and readiness production tours leave less time to complete graduate education between division officer and department head assignments. To mitigate this challenge, WTIs are awarded priority for graduate degree programs at service colleges as well as the Naval Postgraduate School distance learning programs.
Additionally, WTIs are afforded unique and exclusive professional development opportunities that extend throughout their careers. Annual “Re-Blue” events held at SMWDC Divisions are a venue for WTIs, both in-and-out of readiness production tours to attend week-long immersive workshops where information is exchanged and re-distributed into the fleet. Funded travel to Re-Blue events keeps WTIs connected to the sharp edge of the operational Fleet during their readiness production tours and beyond. Re-Blue events are an example of SMWDC’s commitment to maintaining excellence within the WTI cadre.
SMWDC is unlocking the potential of our junior officers and post-department heads, empowering them to swarm and solve difficult problems. While experience will always have a place at the table, this new generation of naval officers holds several key advantages. Unencumbered by “the way things have always been,” these officers are better suited to envision a future that leverages trends in technology, communication, and learning. This is an area where fresh perspective is an asymmetric advantage. WTIs bring their creativity, ingenuity, and initiative to developing the next generation of cutting-edge tactics, techniques, and procedures.
WTI’s are creating a positive impact in the Fleet. From immersion in their focused specialty areas to tactical projects, and deckplate innovations, WTIs have built an impressive list of contributions since SMWDC’s formal establishment in June 2015. Consider the below examples of projects inspired, developed, and built by WTIs, while being supported by SMWDC leadership.
Lt. Cmdr. Katie Whitman was the lead action officer developing the SWATT in port and underway curriculum from the ground-up, using best-of-breed practices culled from aviation and other communities. She developed replay-assisted PBED for rapid learning and crafted the SWATT performance analysis strategy, which are now distinctive features of the exercise.
Lt. Ben Graybosch partnered with NUWC Keyport to revise the VISTA replay tool to include A/V-15 sonar system data, enabling the detailed “ground truth” ASW replay for unit sonar teams within 4 hours of completing ASW events. Graybosch’s effort moved the needle on ASW ground truth replay availability from days or weeks down to hours after an event. With replay tools that offer ground truth much earlier, we can increase the velocity of learning within surface ASW teams dramatically. VISTA is now employed in every ASW event supported by SMWDC and other fleet training events.
Lt. Brandon Naddel was the lead author for the Naval Surface Gunnery Publication released in 2017. Naddel and his team revised a 15-year-old document laden with technical jargon and dated systems into an information-packed and easily understood tactical publication relevant to all surface ships.
Lt. Tyson Eberhardt authored tactical guidance for the emerging Continuous Active Sonar (CAS) capability. Eberhardt leveraged at-sea training and experimentation events to rapidly refine tactical guidance in 2017. Based on his work, the CAS capability was used to great success in the operational fleet later that year.
Lt. Matt Clark designed and built a Target Motion Analysis (TMA) training tool accessible on any classified terminal with built-in performance analytics. Clark’s tool has potential to provide insight on the rate of individual skills decay in TMA. This type of information could then be used to inform currency thresholds for future training requirements.
Lt. Aaron Jochimsen was the lead author for the SM-6 TACMEMO. He conducted extensive research on SM-6 that included production site visits, participation in wargaming and experimentation, as well as involvement in fleet missile firings.
Chief Warrant Officer Troy Woods completed a readiness production tour with the Center for Surface Combat Systems, where he was involved in training individuals and teams on IAMD skills. Woods was subsequently assigned to USS BUNKER HILL (CG 52), where his skills are being put to use as lead IAMD planner within the Theodore Roosevelt Carrier Strike Group. Woods attended the IAMD WTI Re-Blue event in Dahlgren, Va., to share the operational perspective with his fellow IAMD WTIs and receive the latest tactical information from SMWDC IAMD Division leadership.
The WTI Program is a career opportunity that values our officers and empowers them to solve complex and challenging problems. SMWDC WTIs naturally have an eye toward innovation, are re-building the surface warfare library of tactical guidance, are shepherding new capability from delivery to operational success, and challenging the status quo in surface warfare training. Lt. Jochimsen, the lead author of the SM-6 TACMEMO, said it best:
“The opportunity to develop deep knowledge – Subject Matter Expertise – is a game-changing confidence builder as a junior officer. I feel much more prepared for the challenges of an at-sea department head assignment after completing a WTI readiness production tour.”
The WTI cadre of warriors, thinkers, and teachers are uniquely equipped with the experience and knowledge to make significant contributions during their readiness production tours and throughout their careers. It is no coincidence that the same skills involved in developing tactical mastery are extraordinarily useful in subsequent assignments at sea – department head, XO, CO, and major command.
While statistically significant trend data does not yet exist for WTI selection for career milestone billets, members of the WTI cadre performed very well during recent administrative boards.
For those looking to increase their confidence and competitiveness for future at-sea assignments, the WTI program offers a unique opportunity to strengthen their professional attributes and shape the Navy for years to come.
Rear Admiral John Wade is Commander, Naval Surface and Mine Warfighting Development Center.
Commander Jeff Heames serves as the assistant chief of staff for operations, training, and readiness for Naval Surface and Mine Warfighting Development Center.
Featured Image: PACIFIC OCEAN (May 9, 2017) – Warfare Tactics Instructor (WTI), Lt. Lisa Malone of the Naval Surface and Mine Warfighting Development Canter (SMWDC), provides tactical training to officers aboard the aircraft carrier USS Theodore Roosevelt (CVN 71) during a Group Sail training unit exercise (GRUSL) with the Theodore Roosevelt Carrier strike Group (TRCSG). (U.S. Navy Photo by Mass Communication Specialist Seaman Bill M. Sanders/Released)
“Our history is clear that nations with strong allies thrive, and those without them wither. My key words are solvency and security to protect the American people. My priorities as SECDEF are strengthening readiness, strengthening alliances, and bring business reform to DOD.” – General James Mattis (ret.), SECDEF Confirmation Hearing, 1/11/17
At current growth rates, China may become a comparable power to the United States in economic and military terms in the not too distant future. In this future world, China will be less constrained than it is today to attempt to coerce other Asian nations to its will. China’s economy may be slowing at the moment, with significant concerns over sustainability of high debt and growth. Notwithstanding, China is still set to overtake the United States between 2030 and 2045 based on the global power index, which is calculated by Gross Domestic Product, population size, military spending, and technology, as well as new metrics in health, education, and governance. An unbalanced multipolar structure is most prone to deadly conflict compared to a bipolar or balanced multipolar structure.
The execution of the responsibility as the regional balancer requires political will, military capability, and the right grand strategy. While it is difficult to dictate or gauge the political will in an unknown future situation, the U.S. can hedge by building capability and advocating a forward strategy to support partners in the region. One of the ways in which the U.S. can increase joint warfighting capability is through the co-development of defense platforms with key allies such as Japan. Increasing Japan’s warfighting capability is in keeping with a grand strategy of forging an effective maritime balance of power to curb growing threats from revisionist powers such as China and Russia. Production of a common frigate platform would enhance bilateral collective defense by increasing joint interoperability. Designing a ship based on bilateral warfighting requirements would enhance interoperability and concepts of operations in joint warfighting.
The joint development of frigates would deepen the U.S.-Japan security alliance and enhance the regional balance of power to offset China. Operationally, co-development of frigates will increase interoperability, reduce seams in existing naval strategy, and increase fleet size and presence. Industrially, a joint venture will reduce costs of shipbuilding through burden-sharing research and development (R&D), maximizing economy of scale production, and exploiting the comparative advantage in the defense sectors to favor both nations. Logistically, developing a shared platform enhances supply and maintenance capability through interchangeable components, streamlined bilateral inventory, and increased capability to conduct expeditionary repairs of battle damage.
Reducing Seams in Naval Strategy and Forward Presence
A major argument for joint development of a frigate is increasing fleet size of the USN and the JMSDF. The Navy has advocated for a fleet size of 355 ships. The Center for Strategic Budget Assessments (CSBA) recommended 340 ships, and MITRE recommended a total force structure of 414 ships to meet fleet requirements.
One of the main rationales behind these recommendations has been the People’s Liberation Army Navy (PLAN), which has increased its naval ship construction on a vast scale to push the U.S. Navy and JMSDF out of the first island chain. China continues to produce the JIANGKAI II-class FFG (Type 054A), with 20 ships currently in the fleet and five in various stages of construction. 25 JIANGDAO-class corvettes FFL (Type 056) are in service and China may build more than 60 of this class, along with 60 HOUBEI-class wave-piercing catamaran guided-missile patrol boats PTG (Type 022) built for operations in China’s “near seas.” Furthermore, the PLAN continues to emphasize anti-surface warfare as its primary focus by modernizing its advanced ASCMs and associated over-the-horizon targeting systems. According to Rear Admiral Michael McDevitt (ret.), by 2020, China will boast the largest navy in the world measured by the number of combatants, submarines, and combat logistics vessels expected to be in service. According to CNAS, China “will be a Blue-Water Naval Power by 2030” approaching 500 ships.
Not only is the PLAN building more frigates and ASCMs, but it also “enjoys home field advantage.” Therefore, despite the PLA’s overall military inferiority vis-à-vis the U.S. military, the U.S. can execute only a partial commitment of forces to Asia due to its global commitments. China can offset a fraction of the U.S. Navy with the combined might of the PLAN, PLA Air Force, and the PLA Rocket Force with anti-ship missiles, combat aircraft, and missile-capable submarines and patrol craft to deny the U.S. access to waters within the first island chain. Thus, the PLA is quickly becoming a balanced force. A balanced and regionally-concentrated force is creating a growing gap in the ability of the U.S. Navy or JMSDF to gain sea control. The USN and JMSDF require more surface combatants to prosecute an effective sea control strategy. One of the best ways to increase fleet size and sea presence is through building a common frigate.
Operational Advantages and Distributed Warfighting
A new class of frigate would be in line with the Chief of Naval Operations ADM Richardson’s vision in “The Future Navy,” that a “355-ship Navy using current technology is insufficient for maintaining maritime superiority. The Navy must also implement new ways of operating our battle fleet, which will comprise new types of ships.” The platform would be an opportunity to solidify the distributed lethality (DL) concept, promulgated by Commander Naval Surface Force’s Surface Force Strategy. DL combines more powerful ships with innovative methods of employing them by dispersing lethal capabilities. The more distributed allied combat power becomes, the more enemy targets are held at risk, and the costs of defense to the adversary becomes higher. Furthermore, the more capable platforms the adversary has to account for, the more widely dispersed its surveillance assets will be, and more diluted its attack densities become. If the U.S. and Japan can increase the number of platforms and employ them in a bilateral DL architecture, it would present a tracking and salvo problem for the enemy. The new Surface Force Strategy requires an increased fleet size to amass greater number of ships forward-deployed and dispersed in theater.
Within a hunter-killer surface action group acting under the DL operational construct, Aegis destroyers and cruisers would protect the frigates from air and distant missile threats, allowing the frigates to focus on the SUW/ASW mission sets. The ship’s self-defense systems can provide point or limited area defense against closer air and missile threats. The main mission of the sea control frigate, however, will be to help deliver payloads integrated into the Naval Integrated Fire Control-Counter Air (NIFC-CA) architecture through Cooperative Engagement Capability (CEC). Payloads launched by any ship in USN or JMSDF can be terminally guided by nodes in the CEC. The JMSDF is already moving toward integrating a greater portion of its fleet into the U.S. NIFC-CA architecture through combat systems modification to existing ships.
A Frigate for High-Threat Sea Control
The U.S. and Japan should consider a joint venture to develop a common frigate, displacing roughly 4000-5000 tons, whose primary missions are anti-surface warfare (SUW), anti-submarine warfare (ASW), and limited-area air defense/anti-air warfare AD/AAW. In addition to increasing interoperability, a frigate dedicated to these sea control missions would reduce mission shortfalls in the current naval strategy and fleet architecture. Aegis platforms, such as the Arleigh Burke-class destroyers (DDG) and Ticonderoga-class cruisers (CG), must perform myriad missions such as theater ballistic missile defense (BMD) and air defense (AD) of the strike groups, in addition to theater ASW and SUW. While half of the CGs undergo modernization and the cruiser’s long-term replacement is undecided, and where the Littoral Combat Ships (LCS) do not yet provide robust SUW and ASW capabilities, the DDGs must shoulder a larger share of the burden of those missions. Thus, the Navy would benefit from a dedicated and capable platform to conduct SUW and ASW for achieving sea control and burden-sharing with Aegis platforms. A new class of frigate would be in line with the Chief of Naval Operations ADM Richardson’s vision in “The Future Navy,” that a “355-ship Navy using current technology is insufficient for maintaining maritime superiority. The Navy must also implement new ways of operating our battle fleet, which will comprise new types of ships.”
The frigate could escort ESGs, CSGs, logistics ships, and maritime commerce. A limited AD capability would fill the gap in protecting Aegis ships while the latter performs BMD missions, as well as escorting high-value units such as amphibious ships LHD/LHA, LPDs, and aircraft carriers (CVN). These specializations would benefit the planners’ ability to achieve sea control by enhancing the expeditionary and carrier strike groups’ defensive and offensive capabilities. It could also highlight the ability of future JMSDF frigates to integrate into U.S. CSGs, ESGs, and surface action groups (SAG) as practiced by its vessels in exercises such as Rim of the Pacific (RIMPAC) and ANNUALEX.
In a contingency, it is necessary to protect commercial shipping, logistics ships, and pre-positioned supply ships, which are the Achilles’ heel of the fleet. These links in fleet logistics chain are critical to sustaining long-duration operations and maintaining the economic well-being of maritime nations such as Japan and the U.S. Therefore, a sufficient number of frigates would be necessary to provide protection to logistics ships. As far as small combatant vessels, the Navy currently operates eight LCS from a peak of 115 frigates during the Cold War in 1987.
A frigate would require a powerful radar to be able to provide an adequate air defense umbrella to protect a strike group or a convoy. There is some potential in making the next-generation frigate with a scalable Aegis radar such as the SPY-1F. The JMSDF Akizuki-class and Asahi-class destroyers are modern multi-mission capable ships, with a non-Aegis phased-array radar that provide limited AAW capability. Similarly, the next-generation frigate could incorporate a scaled down version of the more modern Air and Missile Defense Radar (AMDR) if the trade-offs in budget and technical specifications warrant the extra investment.
As for the ASW mission, the future frigate should be equipped with an active sonar, a towed passive sonar, an MH-60R (ASW-capable), and a long-range anti-submarine rocket (ASROC) system. A modern hull-mounted sonar connected to the future combat system could integrate the data acquired by towed or variable-depth sonars. It should also be built on a modular design with enough rack space set aside for future growth of systems to accommodate future mission modules. Therefore, the future frigate should have a greater length and beam compared to the LCS to accommodate more space for sensors, unmanned platforms, and combat systems. This should not be confused with a modular concept of the LCS where ASW, SUW, or mine warfare modules can be laboriously swapped out in port in a time-consuming process. The future frigate should focus on ASW/SUW superiority with limited area AD capabilities, and not have to change mission modules to complete this task. These frigates also would not replace the LCS. The LCS could continue to play a niche role in the SAGs as a carrier for drones and UAV/USV/UUV. Thus, the protection of the LCS from attacks will be an important factor, which will fall on the DDGs and future frigates to contribute.
Payloads and sensors have as much importance as platforms in the network-centric distributed lethality concept. Effective joint warfighting requires not just cooperation in platform development, but also requires an emphasis on payload and sensor development. The U.S. and Japan should explore joint R&D of the following payloads in the future frigate: Long Range Anti-Ship Missile (LRASM), Naval Strike Missile, and the surface-to-surface Hellfire missile. Out of these options or a combination thereof, the U.S. and Japan may find the replacement to the U.S. Navy’s RGM-84 Harpoon anti-ship missile and the JMSDF’s Type 90 ship-to-ship missile in service since 1992.
The selection of payloads for the next frigate should be based on bilateral requirements of roles and missions. Furthermore, discussions should also involve offensive and defensive options in non-kinetic electronic warfare (EW) and cyber capabilities for joint development. Effective EW and cyber capabilities will increase the options for commanding officers and task force commanders to achieve the desired effect on the operating environment. A joint development will provide both fleet commanders options to achieve this effect.
As far as increasing fleet size with next-generation frigates, how many frigates is enough? Based on global commitments for the U.S. Navy and regional commitments for the JMSDF, 60 frigates for the USN and 20 frigates for the JMSDF would be justified. By building 60 frigates, the U.S. Navy would be able to forward-deploy at least one-third (20 frigates) to the Western Pacific. The frigates should be dispersed and forward-deployed to U.S. naval bases in Japan, Guam, Singapore, and Hawaii as well as those on 7-month deployments from the continental U.S. The JMSDF would also build 20 frigates of the same class. Taken together, there would be a total of 40 frigates of the class in the Western Pacific between the USN and JMSDF. This ratio parity (1:1) would benefit the planners’ ability to conduct joint task force operational planning as well as factoring in collective self-defense considerations. 40 frigates would create enough mass to establish a distributed and forward sea presence, and when required, gain sea control with Aegis DDGs in hunter-killer SAGs.
Meanwhile, the JMSDF has not built 20 ships of any combatant class. Setting the goal high with 20 vessels of the next frigate would be an important milestone for the JMSDF toward increasing its fleet size in a meaningful way. The JMSDF recently announced that, to speed up vessel production and increase patrol presence in the East China Sea, it would build two frigates per year compared to one destroyer per year. It appears the JMSDF is also realigning its strategy and procurement to cope with the changing security environment in East Asia.
Industrial Advantages of Joint Development
Bilateral development of the next frigate will enjoy industrial advantages in burden-sharing R&D, maximizing economy of scale production, and exploiting the comparative advantage of the U.S. and Japanese defense sectors. Burden-sharing R&D through cooperative development helps to reduce risks. Barry Posen, director of the MIT Security Studies Program, advocates burden-sharing as a central issue of alliance diplomacy. Joint R&D mitigates risk through technology flow between two countries. Any newly developed or discovered technologies can be shared as part of the platform’s development. Thus, U.S. and Japan can tailor regulations on technology flow and export control laws to suit the scope of this bilateral development project to ensure seamless integration and manage risk.
Moreover, maximizing economies of scale production would help mitigate the rising costs of producing warships and weapons systems under unilateral R&D. Economy of scale coproduction or co-development program would be “consistent with Congress’ preference for allied cooperation in arms development (Nunn Amendment), by reducing acquisition costs and freeing resources for other burden sharing.” A joint development with a close U.S. ally with a similar technology base and history of shared platforms development would make sense to cut costs, share technology, and hedge R&D risk. The U.S. and Japan have begun to move in the direction of cooperative development. In 2014, the U.S. Ambassador to Japan, Caroline Kennedy, and Japan Foreign Minister, Fumio Kishida, announced that the Defense Ministry and the DOD would hold studies to jointly develop a new high speed vessel under the bilateral Mutual Defense Assistance (MDA) agreement. Although not many details were released to the public on this agreement, the studies may have centered on the LCS as a possible platform to base the bilateral project. A joint frigate project should be designed on a platform that addresses all of the LCS’ deficiencies and that meets bilateral requirements to achieve sea control via SUW/ASW superiority and distributed lethality.
Leveraging the economy of scale through joint development would also help Japan as its defense systems have also become more expensive to develop unilaterally. Many Japanese firms view international defense business as unstable and unproven in terms of profitability. However, recent JMSDF Chief of Maritime Staff, ADM Takei, saw opportunities for cooperative development as Japanese defense industry has high-end technology, but lacks expertise and experience. ADM Takei believed there is much potential for subsidiaries of major Japanese corporations that specialize in defense production to cooperate with U.S. defense firms to partner in the development or become a supplier of parts for U.S.-made equipment. Thus, by cooperating in shipbuilding, the U.S. and Japan would benefit from reduced costs of production of components and systems by taking advantage of economies of scale.
Joint development will also leverage the comparative advantage of the respective industrial sectors to favor both nations. For example, if the U.S. produces something relatively better or cheaper than Japan such as the weapons, radar, or combat systems, the U.S. could take the lead in developing and building the systems for both countries. Conversely, if Japan produces a section or component of the ship better or cheaper than the U.S. (e.g., auxiliaries, propulsion, or hull), Japan could take the lead in developing it for both countries. However, domestic constituency and laws may prevent efficient production based on comparative advantages in the U.S. and Japan. The Buy American Act of 1933 requires the U.S. government to give preference to products made in the United States.
In light of cultural and historical opposition to buying foreign-made ships in both countries, a practical solution would be if both countries produced its own hulls in their domestic shipyards based on the same design. This would preserve American and Japanese shipbuilding and defense jobs in their home constituencies. Comparative advantage production, though, should be sought in auxiliary/propulsion systems, weapons, and radars to make the venture as joint and cost-effective as possible. Cost savings would not be as great if both countries produced its own ships; however, there is still a net positive effect derived from increased interoperability, joint R&D, and common maintenance practice from a shared platform. This would ultimately translate to increased collective security for both countries and a stronger alliance which cannot be measured solely by monetary savings.
Logistical and Maintenance Advantages
U.S.-Japan joint frigate development offers maintenance and logistical advantages. The USN and JMSDF utilize similar logistics hubs currently in forward-deployed bases in Japan. The U.S. and Japan can find efficiency by leveraging existing logistics chains and maintenance facilities by building a platform based on shared components. Theoretically, a JMSDF frigate could be serviced in a USN repair facility, while a USN frigate could be maintained in a JMSDF repair facility if the platform is essentially built on the same blueprint. This may help reduce maintenance backlogs by making efficient use of USN and JMSDF repair yards. Furthermore, the use of common components would make parts more interchangeable and would also derive efficiency in stockpiling spares usable by both fleets.
Recently, the JMSDF and USN participated in a first of a kind exchange of maintenance parts between USS Stethem (DDG-63) and destroyer JS Ikazuchi (DD-107) during Exercise MultiSail 17 in Guam. It was the first time in which U.S. and Japan used the existing acquisition and cross-servicing agreements (ACSA) to exchange goods between ships. The significance was that ACSA transfers are usually conducted at the fleet depot or combatant command (PACOM) levels, and not at the unit level. As U.S. and Japan devise creative ways to increase interoperability, commonalities in provisions, fuel, transportation, ammunition, and equipment would add to the ease of streamlining the acquisition and exchange process. Ships built on the same blueprint would in theory have all these in common.
Common parts and maintenance would also improve theater operational logistics in the Fifth and Seventh Fleet AORs. For counter-piracy deployments to the Indian Ocean and Gulf of Aden, the JMSDF would be able to utilize U.S. logistics hubs in Djibouti, Bahrain, Diego Garcia, Perth, and Singapore to obtain parts more readily or perform emergency repairs. Guam, Japan, and Hawaii could be hubs in the Pacific to deliver common parts or perform maintenance on the shared frigate platform. The U.S. can expand its parts base and utilize ACSA to accept payment in kind or monetary reimbursement. Most importantly, the benefit to warfighters is that vessels would not be beholden solely to the logistics systems of their own country. Rather, ships can rely on a bilateral inventory and maintenance availability leading to enhanced collective security and a closer alliance.
Damage Repairs in Overseas Ports
Besides regular maintenance, the doctrinal shift to a more offensive strategy of distributed lethality requires that the Navy address the potential for a surge in battle damage. There is a potential for an upsurge in battle damage as ships are more widely dispersed with a greater offensive posture, which may lead to a distributed vulnerability to taking casualties. This prospect requires the Navy to focus on increasing the repair capability of naval platforms in forward ports. Therefore, the need to conduct expeditionary repair, or the ability to swiftly repair naval ships that take on battle damage, becomes more important and challenging. The four repair facilities in the Pacific best positioned to repair ships that receive damage are located in Guam, San Diego, Everett, and Pearl Harbor, as well as at the joint U.S.-Japanese ship repair service in Yokosuka, Japan. A common U.S.-Japan platform that shares the same design and components would be better able to repair battle damage in forward repair facilities in an expeditionary and expeditious manner. Spreading the battle repair capability across the theater reduces risks in the offensively-postured DL concept.
The U.S. Navy and JMSDF have achieved strong interoperability through years of conducting bilateral exercises. Having both nations producing their own warships and then achieving close interoperability through joint operations remain a convincing argument to maintain the status quo. Foreign Military Sales (FMS) have been useful mechanisms to transfer U.S. technology and reaping the benefit of technology flowback from Japanese R&D. The current system of Japan license-producing U.S. systems has preserved Japan’s status as an important client of U.S. defense systems.
The Fighter Support Experimental (FS-X) co-development project in the 1980s showed that terms and conditions of technology transfer and flowback must be equitably worked out, or Japan may also balk at pursuing a joint development with the U.S. Japan received U.S. assistance for the first time in the design and development of an advanced fighter. The Japanese saw co-development as a next stage in the process toward indigenous production, as the technical data packages transferred not only manufacturing processes or “know-how,” but full design process or “know-why” as well. Prominent politicians, however, such as the former-Governor of Tokyo, Shintaro Ishihara, clamored in op-ed pieces for Japan to step out from “Uncle Sam’s shadow” and pursue an independent development vice a joint development.” Speaking for many of the Japanese policy elites who shared his sentiments, the FSX would “give away [Japan’s] most advanced defense technology to the United States but pay licensing and patent fees for each piece of technology we use. Washington refuses to give us the know-how we need most, attaches a battery of restrictions to the rest and denies us commercial spinoffs.” If the terms of co-development such as technology flowback and terms and conditions of tech transfer are not equitably worked out, Japan may also balk at pursuing a joint development with the U.S.
These arguments have strong logic, but they still have flaws. Japan has followed the license-production model of producing U.S. systems for decades following WWII. To provide a few examples, Japan has produced the F-104 fighter, SH-60 helicopter, P-3C Orion anti-submarine patrol craft, and Patriot missiles under license. In many instances, Japanese engineers made significant improvements and enhancements to U.S. designs. While license-production has advantages in guaranteeing technology flowback, it only works if the platform being license-produced is already a proven effective platform. In the case of frigates, there is no such platform yet. The LCS has too many issues for it to be a viable future frigate that could replace JMSDF’s light escort destroyers. With no viable alternative to the future frigate design, the U.S. risks “going at it alone” on a program that has already consumed precious time and resources on the problematic LCS program. It is unlikely that Japan would want to produce or buy an ineffective and problematic platform.
Finally, the age of Japan license-producing U.S. weapon systems is increasingly an outmoded framework. While there is no ally with whom the U.S. has more commonality in defense hardware than Japan, these programs function in a manner largely detached from any real strategic vision. The transfer of leading edge U.S. systems (coproduction of the F-15 fighter, the sale of Aegis-equipped warships, even the transfer of 767-based AWACS early warning aircraft) was carried out in an episodic and disjointed manner. What is needed is a joint R&D program based on bilateral operational requirements from the outset, which nests with the Surface Force Strategy of the 21st century to ensure joint interoperability. In order for Japan to break the model of “U.S. as patron / supplier – Japan as client / recipient,” Japan must also step up defense R&D and burden-share on a future platform that will mutually benefit the security of the Pacific. The U.S. must also be open to the idea of cooperative partnership in ship development and production that would benefit the U.S. primarily through greater security, and distance itself from the notion that co-development would only benefit Japan.
A Frigate for the 21st Century
Cooperative development of the future frigate would mutually benefit the U.S. and Japan and the security of the Pacific for the greater part of the 21st century. A common platform would enhance interoperability by basing its design on bilateral operational requirements and integrating it into Surface Force Strategy’s distributed lethality concept. Furthermore, this strategy would reduce seams in the current strategy by burden-sharing sea control responsibilities with existing platforms, principally the Arleigh Burke DDGs, and increase the size of USN and JMSDF fleets by factoring in joint planning and collective self-defense considerations.
In an age of limited resources and persistent cost growth in unilateral defense programs, a joint development program offers solutions by reducing cost through burden-sharing R&D, leveraging economies of scale and comparative advantage to favor both nations. A shared platform would enhance operational logistics and maintenance through the use of same components, streamlining bilateral inventory, and enhancing expeditionary repair capability. Therefore, the joint development of a frigate would improve operational, industrial, and logistical capabilities of the alliance in a concrete manner. Ultimately, this project would enhance the U.S.-Japan collective defense and security to counterbalance China’s revisionist policy in the maritime sphere.
Joint frigate development is not only a good idea, but it is also an achievable and realistic proposition. If increasing fleet size is a necessity for U.S. and Japan, why not choose the most financially pragmatic and feasible option? Relative declines in defense budgets rule out the ability of any country to be completely autonomous in defense acquisitions. Cooperative development and production have become a necessity—not an indulgence. Thus, a practical strategy that utilizes the resources of more than one country effectively will gain the advantage over adversaries that commit only their own industry. It would behoove the U.S. and Japan to prepare for a future contingency during peacetime by forging a stronger alliance through developing an effective platform that increases fleet size and interoperability, brings defense industries closer, and improves logistics and maintenance.
The U.S. and Japan’s security relationship has developed into a robust alliance spanning the breadth of all instruments of national policy and interests. In the next phase of the alliance, the U.S. and Japan should undertake a major cooperative shipbuilding project that broadly encompasses the industrial might of these two nations, to safeguard the maritime commons that underwrites the security of the Pacific and the global economy. Let that project be the joint development of the next generation multi-mission frigate that will serve for the majority of the 21st century.
LCDR Jason Yuki Osuga is a graduate of the Advanced Strategist Program at the Naval War College, and is the prospective Naval Attaché to Japan.
 John Mearsheimer, The Tragedy of Great Power Politics, (New York: W. W. Norton & Co., 2014), 363.
 “Red Ink Rising,” The Economist, March 3, 2016. Accessed on April 16, 2017 in http://www.economist.com/news/finance-and-economics/21693963-china-cannot-escape-economic-reckoning-debt-binge-brings-red-ink-rising
 National Intelligence Council, “Global Trends 2030: Alternative Worlds,” NIC 2012-001, December 2012, 16. Accessed on https://www.dni.gov/files/documents/GlobalTrends_2030.pdf
 Mearsheimer, 335.
 Robert D. Blackwell and Ashley J. Tellis, “Revising U.S. Grand Strategy Toward China,” Council on Foreign Relations, Council Special Report No. 72, March 2015, 39.
 “Secretary of the Navy Announces Need for 355-ship Navy,” 2016 Force Structure Assessment (FSA), December 14, 2016. Accessed on April 10, 2017 in http://www.navy.mil/submit/display.asp?story_id=98160
 Sydney J. Freedberg Jr., “Big Wars, Small Ships: CSBA’s Alternative Navy Praised by Sen. McCain,” Breaking Defense, February 09, 2017.
 Office of the Secretary of Defense, “Annual Report to Congress: Military and Security Developments Involving the People’s Republic of China,” April 26, 2016, 66.
 Ibid, 27.
 Ibid, 26.
 Michael McDevitt, “Beijing’s Dream: Becoming a Maritime Superpower,” National Interest, July 1, 2016, cited in Toshi Yoshihara and James Holmes, “China’s Rising Sea Power,” Foreign Policy Research Institute, November 5, 2016, 95.
 Patrick M. Cronin, Mira Rapp-Hooper, Harry Krejsa, Alex Sullivan, “Beyond the San Hai: The Challenge of China’s Blue-Water Navy,” Center for a New American Security (CNAS), May 2017, 2.
 Toshi Yoshihara and James Holmes, “China’s Rising Sea Power,” Foreign Policy Research Institute, November 5, 2016, 95.
 Yoshihara and Holmes, 95.
 Yoshihara and Holmes, 95.
 Interview with Professor Toshi Yoshihara, November 06, 2016.
 Chief of Naval Operations, ADM John Richardson, “The Future Navy,” May 17, 2017. Accessed on May 21, 2017 in http://www.navy.mil/navydata/people/cno/Richardson/Resource/TheFutureNavy.pdf
 Commander, Naval Surface Force, “Surface Force Strategy: Return to Sea Control,” January 9, 2017.
 VADM Thomas Rowden, RADM Peter Gumataotao, RADM Peter Fanta, “Distributed Lethality,” Proceedings, 141, no. 1 (2015): 5.
 Commander, Naval Surface Force, “Surface Force Strategy: Return to Sea Control,” January 9, 2017.
 Jeffrey McConnell, “Naval Integrated Fire Control–Counter Air Capability Based System of Systems Engineering,” Naval Surface Warfare Center, Dahlgren Division, November 14, 2013.
 Sam LaGrone, “Planned Japan[ese] Self Defense Force Aircraft Buys, Destroyer Upgrades Could Tie Into U.S. Navy’s Networked Battle Force,” USNI News, June 10, 2015.
 “US Navy’s Cruiser Problem — Service Struggles Over Modernization, Replacements,” Defense News, July 7, 2014. Accessed April 22, 2017 in http://www.defensenews.com/story/defense/archives/2014/07/07/us-navy-s-cruiser-problem-service-struggles-over-modernization-replacements/78531650/
 Government Accountability Office, “Littoral Combat Ship and Frigate: Congress Faced with Critical Acquisition Decisions,” GAO-17-262T, December 1, 2016, 1. Accessed on APR 06, 2017 in http://www.gao.gov/assets/690/681333.pdf
 Chief of Naval Operations, ADM John Richardson, “The Future Navy,” May 17, 2017. Accessed on May 21, 2017 in http://www.navy.mil/navydata/people/cno/Richardson/Resource/TheFutureNavy.pdf
 Naval History and Heritage Command, “U.S. Ship Force Levels: 1886-present,” U.S. Navy, accessed March 4, 2017, https://www.history.navy.mil/research/histories/ship-histories/us-ship-force-levels.html. Graph courtesy of LCDR Benjamin Amdur.
 Interview with Professor Toshi Yoshihara, Strategy and Policy Dept., Naval War College, November 06, 2017.
 ADM Jonathan Greenert, “Payloads over Platforms: Charting a New Course,” Proceedings, 138, no. 7 (2012): 16, https://search.proquest.com/docview/1032965033?accountid=322 (accessed January 12, 2017).
 Eric Wertheim, The Naval Institute Guide to Combat Fleets of the World: Their Ships, Aircraft, and Systems. (Annapolis, MD: Naval Institute Press, 2007), 374.
 Nobuhiro Kubo, “Japan to Speed up Frigate Build to Reinforce East China Sea,” Reuters, February 17, 2017, accessed on March 4, 2017 in http://in.reuters.com/article/japan-navy-frigates-idINKBN15W150.
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Featured Image: Japanese Kongo-class destroyer (JSDF/MOD photo)
The Naval Surface and Mine Warfighting Development Center (SMWDC) is a critical element of the Navy’s Surface Force Strategy: Return to Sea Control.The command’s four lines of operation are advanced tactical training and tactical guidance development, operational support to combatant commanders, numbered fleet commanders and task force commanders, and capabilities assessments, experimentation, and future warfighting requirements. A critical supporting element in each of these focus areas are the men and women who are trained as Warfare Tactics Instructors (WTIs).
In this interview, Sally DeBoer (SD) spoke with four WTIs who are on the cutting edge of the cultural shift taking place in the surface Navy. Our guests are Lt. Tyson Eberhardt (TE), who is an Anti-Submarine Warfare/Anti-Surface Warfare Tactics Instructor (ASW/SUW), Lt. Brittany Hubbard (BH), who is an Amphibious Warfare Tactics Instructor (AMW), Lt. Benjamin Olivas (BO), who is an Integrated Air and Missile Defense Warfare Tactics Instructor (IAMD), and Lt. Damon Goodrich-Houska (DGH), who is an ASW/SUW WTI. Read the transcript or download the audio below.
SD: Welcome back! On this episode of Sea Control, our guests today are four Warfare Tactics Instructors from the Naval Surface and Mine Warfighting Development Center (SMWDC) in San Diego, CA. Thank you all so much for taking time out of your schedule to join us today. Let’s begin by getting a little background on each of you. What did you do prior to coming to SMWDC, and what drew you to the command?
TE: I was the ASWO officer and navigator on USS Preble as a division officer, I really enjoyed the tactical aspect of getting to meet sonar technicians and finding submarines. As a division officer, the opportunity on shore duty to expand my knowledge base and help other ASWOs drew me to the command.
DGH: I served on USS Reuben James and as the training officer on the USS Rushmore, part of that tour was going through a training cycle where you get the crew and all the watchstanders up to the level they need to be to deploy. With that experience, I got to conduct drills, run through scenarios, and train sailors. What drew me to SMWDC was the opportunity to learn and implement advanced tactics, then train warfighters on how to fight more effectively, I really enjoy ASW especially.
BH: I spent my first division officer tour on the USS Green Bay, and then I moved to a destroyer, the USS Lassen, as the damage control assistant. What interested me in SMWDC was going back to my roots as an amphibious sailor. A lot of the mission sets we conducted with the Marine Corps taught me how to be a liaison and work on the relationships between sailors and our USMC counterparts. That is what interested me in joining this program.
BO: Before I came here, I was the communications officer on USS Paul Hamilton and then I was the training officer on USS Michael Murphy, both out of Pearl Harbor. I served as air warfare coordinator and I came from a background where most of my captains knew this domain really well; I truly enjoyed that billet. Working with sailors and teaching people was something I also found enjoyable. When I heard about SMWDC, I thought what better way to use all this knowledge I have accumulated, pass it on, and make a difference?
SD: What impact do you see from the work you have done at SMWDC?
DGH: One of the biggest things I have seen is a culture shift, and one of the main aspects is the PBED (Plan, Brief, Execute and Debrief) model. If you look at elite athletes, they don’t just go out and do their event, they will study, watch videos of themselves doing the actions, look over the minute details to improve, as well as watch competitors to adapt techniques and methods.
So we go out and do Surface Warfare Advanced Tactics and Training (SWATT) and have WTIs on each ship and, after doing various events, we will actually show the crew and the watchstanders a replay of the event, including voice recordings of reports. Walking through that, we start with the WTIs doing the majority of the presentation with the watchstanders and crew jumping in here and there, but by the end of the training, the watch teams are running things on their own and identifying issues themselves. So, seeing that training change hands from the WTIs to the ship’s crew, to where they are able to conduct their own training and self-improvement, is really great.
TE: We also conduct training ashore, so my primary job as an advanced sonar instructor is to provide this advanced tactical instruction to officers that will go out and conduct training. This classroom training is another important part of our mission. Getting to work with officers before they go to sea is another exciting part of our mission here.
BO: We tend to pride ourselves on not just conducting training but also building knowledge. One of the things that we have done is try to apply the same type of teaching approaches we learn from our counterparts. We put them through the ringer here in terms of making them go up and do a brief, do it well, and do it repeatedly to the point where they’ve put in so many hours, done so much research, taken and internalized these techniques…this goes for all of the schools here. So when you see a sailor give a brief, you know you will get a certain product because it’s been tailored a certain way. Since we have been doing it this way, we’ve seen a great payoff.
SD: How does the reported success of the WTI program in improving tactical proficiency translate to future training development for the Navy’s SWOs?
BH: I think that the three different schoolhouses that we currently have provide a good baseline for how we expect our future SWOs to participate in developing tactical proficiency. We take an elite cadre of junior officers and we put them through these schoolhouses and then, as we complete our production tour, which is anywhere from two or three years, those same officers then go back out to the fleet as department heads that will eventually be XOs and COs. So we are bringing our tactical proficiency to a new standard.
DGH: Another point is that as we develop new tactics and doctrine, we get a chance to take it out to sea with real world watchstanders to test it out and make sure that it is up to par, that it’s effective, and if not, we can make adjustments very rapidly.
SD: Is the emphasis more on teaching rigid existing doctrine or on allowing WTIs to develop and pursue new, original ideas?
DGH: It’s a little of both. We do rely on doctrine, but we also take our WTIs and ensure that we apply rigor, academic rigor, to our doctrine and tactics to make sure they are in fact reliable, and if there are issues, then again we identify them, correct them, and ensure the WTIs are empowered to enact changes and improve things.
TE: I think to Damon’s point, we have WTIs out at sea who have a responsibility to know the doctrine and the guidance, but have the opportunity to think critically and bring new ideas to the organizations. We’ve taken a more active role in events like the SCC (Submarine Command Course) where we have a chance to try out new tactics and see how effective they can be, then feed that back into formalized doctrine.
BO: One of the good things about being able to test out new TTPs and doctrine is also being able to apply those things earlier and develop that muscle memory. The more we internalize tactics, the more they are applied and become part of the ship. Out there on the water where officers are asked to make quick decisions, this muscle memory represents a force multiplier for the entire fleet.
SD: How do you see yourselves speeding up and improving the Navy’s ability to field new thinking and capabilities?
BH: A lot of what we do when we go out to ships and in the schoolhouse is not only study current doctrine but also evaluate new ways of utilizing that doctrine. We receive immediate feedback from the ships, and then we conduct workshops and working groups that take a really hard look at what we are currently teaching and make sure it is the best way to conduct that event.
BO: The other thing we’ve hit on in terms of improvement is the impact that we see in the classroom, the way we teach. Being able to sit down and listen to briefs and take them in has created a much better experience for the students, they take on a lot of what we’ve done and they “get it.” We have created these lessons so when they walk away from classrooms they’re ready to use what they have learned. We use the ARCS (attention, relevance, confidence, satisfaction) approach – we see that as a feedback loop for the students. Once we have their attention, we present relevant information. Confidence means that they can walk away feeling like they “get it,” and satisfaction (S) means they can go to their ships and into combat or an exercise and satisfactorily apply the things we’ve taught them.
DGH: To add on, in operational environments, the more we get WTIs out to the ships as DHs, especially once we hit that critical mass where there’s one WTI per ship, we will have already created a network of WTIs that all know how to get in touch with subject matter experts (SMEs) in various areas. Much of that reach back comes here (SMWDC HQ), and we have good communications with the aviation and undersea communities, etc.
As things change and real world events occur, we rapidly take in feedback and develop new tactics and doctrine as needed. We can model new systems going into the fleet, and any feedback from doctrine and tactics used in the real world can be brought into the classroom to make sure that the next set of WTIs that head out to train others have the most up-to-date information. We are not teaching out-of-date stuff, we are teaching the latest and greatest.
SD: What kind of collaboration and integration do WTIs have with one another and different communities (aviation, undersea, etc.)?
BH: So, one way that we do this is anytime we have a course that we are trying to teach or area of interest we need more information on, we reach out to that community. For example, we are participating in an SCC (Sea Combat Commander) course for various DESRONs and PHIBRONs working through training cycles. We recently reached out to the aviation weapons schools for input and participation to make sure we are as tactically proficient in the relevant areas we are teaching as they are.
TE: Along those lines, an important part of what WTIs do is that broad reach. While we train WTIs here at SMWDC, others are working for various other schools and groups and counterparts that have a specific focus. That allows us as a community of WTIs to try and foster cross-domain thinking about problems that don’t just affect one area, but affect the whole spectrum of naval warfare.
SD: How can you work to keep your skills current in an age of rapid change?
DGH: We have a lot of WTIs here that are traveling, going out and doing various events, training aboard ships, and getting a lot of great experiences, such as live fire events, things that previously were something an officer might get to do once or twice in a career, we have WTIs doing multiple times a year.
What we ended up starting was what we call “Tactical Taco Tuesday,” which we hold multiple times a month. It is a long working lunch where we cross-train between domains, IAMD folks, ASUW, ASW, and amphibious folks. We also pull in other warfare areas as well, such as CW or Intelligence, and get some good cross-training in a less formal environment that allows for really good quality discussion and in-depth questions – plus everyone brings food so it builds an esprit de’corps that keeps the WTI network strong.
When we go on to our next tours, we know who to talk to and who the experts are. The more formal way we do this is that when WTIs come back to the schoolhouse, which we call Re-Bluing, we conduct refresher courses where the latest and greatest TTPs are taught.
SD: What do you think is next for SMWDC and the WTI program? How do you envision WTIs being utilized five or ten years down the line?
BH: I think that as WTIs, this is simply a two or three year tour, but when we leave this production tour, we do not take off our patch, it is still up to us to continue remaining as tactically proficient as our patch would designate us to be. So in 5-10 years, the goal is to be DHs, XOs, and COs, all the while continuing to build that knowledge base that we started back during a WTI production tour.
DGH: As we have more and more senior leadership who are WTI-qualified, it’s going to push an overall culture change, much like the phrase “a rising tide raises all boats,” it’s that idea that as increasingly more senior leadership has experience as WTIs, they will maintain that emphasis on being the best, drilling hard, working on doctrine and tactics, and that will really shift our focus.
WTIs are supposed to be warriors and thinkers and teachers, so when we get out and stand tactical watches, those same WTIs will be thinkers and work on doctrine, tactics, and improving existing processes as well as developing new systems and ideas, while also serving as teachers, in that they will train watchstanders, crews, and even strike groups. Ultimately, this will improve our warfighting ability.
BO: One of the things that we really hammer home is that this command is primarily O-3s and O-4s, which in the grand scheme is very junior in rank, but we are the ones doing the homework and teaching people in ranks above and below. Ultimately, I think what we are trying to get at is that the tactical experts will be the gatekeepers and have the breadth of knowledge to build something great.
TE: The WTI program is an effort to put warfighting first among SWOs. As SWOs we have so many things we have to be proficient at, but the bottom line is we need to be warfighters, and this requires an advanced understanding of tactics. And by building this cadre of WTIs, for years down the line as DHs and beyond, we will be making an impact by bringing that to the fleet
SD: What is your message to aspiring surface warfare officers who are interested SMWDC?
TE: I think what most excites me about getting to be a part of this command is that the Navy is investing in my level of knowledge and in my ability to go out and lead sailors in the future. It is exciting to train others, to do these exercises. The bottom line is that every single day I come to work I learn something new, and the organization is committed to training me to a higher level of knowledge that will pay off for years as I have come to a whole new appreciation for expertise in surface warfare.
DGH: For aspiring SWOs, as a JO, as a non-qualified SWO working toward that pin, you have much to learn and focus on, but number one I would encourage young SWOs to learn as much as you can and focus on tactics, but communicate early with your chain of command that you’re interested in the WTI program if you have a passion for tactics and training. Of course, work on your qualifications and do your job well, but there are many opportunities to become qualified in warfare areas as a JO, whether it’s ASWE for a second tour or various air warfare qualifications on an Aegis platform. Focus on those and work toward being the best tactician you can in whatever position you are in – strive to be the “go-to” guy or gal in that position. So when you do apply to be a WTI, those recommendations will really help.
BH: For SWOs looking to come here, this is probably going to be a once-in a-career type of opportunity. Every day when I come to work, my job is to take research, take what we’re doing, take a schedule, and make it the best that I can for the fleet, event, or scenario. There wasn’t a time in the first four years of my career where someone asked me to research tactics or to figure out a problem – but for all SWOs this is your time. You’re two to three years out of your career that you can spend just focusing on making the warfare areas better, building relationships, and networking. In that way it is different from many tours you could do otherwise.
BO: Looking back on everything, I think all of us are close enough to our JO tours to realize that being a junior officer onboard a warship is not an easy task. It is a lot of sustained hard work that keeps you up many nights studying. We understand how hard you’ve worked for your pin. The shore tour is a time when many look to take some gas off the pedal and regroup. Here we have an opportunity to do that, but we also have a lot of work to do, but it’s good work. It is something that is going to make a difference.
Quite frankly, of all the people I have worked with in my career, there is no one I would rather work with. The people here are trying to make a difference, and that work will echo in the Navy for many years to come. My takeaway to you is, if you’re qualified in an area, pursue it rigorously, look at the pubs, talk to the watchstanders, and ask as many questions as you can, because one day you may be the one teaching others to do that and it is going to matter. That is why we were created.
SD: Thank you all so much for taking time out of your day to join us here on Sea Control and for leaving our listeners more informed about the work you’re doing and the mission of the Surface and Mine Warfighting Development Center. We hope you’ll join us again! For our listeners – this has been another episode of Sea Control. Thanks for listening!
Lt. Benjamin Olivas is a native of El Paso, Texas and earned his bachelor’s degree in history from the United States Naval Academy in 2011. He received a commission in the Navy and was selected to be a Surface Warfare Officer. Olivas is an Integrated Air and Missile defense Warfare Tactics Instructor (IAMD WTI), and currently serves as the Standardization Officer at the Surface and Mine Warfighting Development Center (SMWDC) in San Diego, CA.
Lt. Brittany Hubbard is a native of Grand Chain, Illinois and earned her bachelor’s degree in psychology from University of Illinois in 2012. Hubbard is currently at SMWDC Sea Combat Division as an Amphibious Warfare Tactics Instructor.
Lieutenant Damon Goodrich-Houska graduated from Indiana University in 2010 with a Bachelor of Science degree in Public and Environmental Affairs. Damon earned his commission through Officer Candiate School in 2010. Additionally, he earned his master’s degree in Cyber Security from National University in 2016. Lieutenant Goodrich-Houska is currently assigned to Navy Surface and Mine Warfighting Development Center as N5 Anti-Submarine Warfare Assistant, N5 Doctrine & Tactics Branch. Damon completed the Legacy SuASW WTI course at the top of his class, and completed the ASUW/ASW WTI Pilot Course as the honor graduate.
LT Tyson Eberhardt is a native of Seattle, Washington and earned his bachelor’s degree in from Princeton University in 2008. He holds a master’s degree in education from the University of Pennsylvania. Eberhardt earned his commission through Officer Candidate School in 2013. He is currently an ASW/SUW Warfare Tactics Instructor at SMWDC Sea Combat Division specializing in active sonar systems and tactics. During his time at SMWDC he also served as the uniformed lead for SHAREM 188 with the ROK Navy.
Sally DeBoer is an Associate Editor with CIMSEC, and previously served as CIMSEC’s president from 2016-2017.
Matthew Merighi is the Senior Producer for Sea Control.