BY ORDER OF THE SECRETARY OF THE AIR FORCE AIR FORCE POLICY DIRECTIVE 90-10 16 JUNE 2006 Certified Current 31 July 2014 Command Policy TOTAL FORCE INTEGRATION POLICY COMPLIANCE WITH THIS PUBLICATION IS MANDATORY ACCESSIBILITY: RELEASABILITY: Publications and forms are available for downloading or ordering on the e-publishing website at www.e-publishing.af.mil/ There are no releasability restrictions on this publication. OPR: AF/A8 Certified by: HQ USAF/A8 (Lt Gen Stephen G. Wood) Pages: 9 This directive establishes Air Force policy for implementing initiatives integrating the Regular Air Force (RegAF) and Air Reserve Components (ARC) of the Air Force as part of Total Force integration. It provides the policy foundation for integration of all Air Force components to provide air, space and cyber power for the joint warfighter. The desired end state is a more effective and efficient organization that leverages the unique strengths of each component. This policy directs commanders at all levels to continually seek ways to integrate in order to benefit from synergizing Air Force component capabilities to enable the joint warfighter. This publication applies to the RegAF and the Air Reserve Components (ARC). All references to the ARC throughout this directive include the Air National Guard (ANG) and the Air Force Reserve (AFR). Roles and Responsibilities 1. Chief of Staff (CSAF). CSAF, acting on behalf of the Secretary of the Air Force (SECAF), provides oversight for Total Force integration, and is final approval authority for all integration initiatives. 2. Assistant Secretary of the Air Force (Manpower and Reserve Affairs (SAF/MR)). SAF/MR is responsible for providing guidance, oversight and direction of all matters pertaining to manpower; military and civilian personnel; reserve components and readiness support for the Department of the Air Force. SAF/MR will review any manpower and legislative guidance on integration initiatives, and implementation plans initiated by AF/A8. 3. Deputy Chief of Staff, Manpower and Personnel (AF/A1). AF/A1, as the focal point for Air Force human capital management policy development, is responsible for developing, coordinating, and executing manpower and personnel legislation and policies necessary for Total Force integration implementation plans.
2 AFPD90-10 16 JUNE 2006 4. Deputy Chief of Staff, Strategic Plans and Programs (AF/A8). AF/A8 will lead Total Force integration on behalf of the SECAF and facilitate coordination of initiatives across major commands (MAJ- COMs), the National Guard Bureau (NGB), the Air Force Reserve (AFR), and other Air Staff deputies. AF/A8 will develop and coordinate Air Force Total Force integration policy and serve as the single point of contact for all matters pertaining to the Total Force Integration program, relying on appropriate Secretariat and Air Staff organizations for functional policy solutions and oversight. AF/A8, when appropriate, will present Total Force integration resource and policy matters to the Air Force Corporate Structure and ensure ARC representation on all steering groups and other teams deemed necessary to implement this policy. AF/A8, acting on behalf of the SECAF, will coordinate integration initiatives between the MAJ- COMs, the NGB, the Air Force Reserve Command (AFRC), and other Headquarters Air Force (HAF) organizations, elements of the Secretariat, direct reporting units, and forward operating elements, as appropriate. AF/A8 will ensure that all integration initiatives comply with DoD and Air Force policy, and law. 5. Chief of Air Force Reserve (AF/RE). AF/RE will coordinate with the appropriate HAF offices and MAJCOM(s) to foster new integration initiatives and coordinate integration implementation plans through MAJCOMs to AF/A8. AF/RE will provide representatives for all Headquarters Air Force (HAF)-level steering groups and other teams deemed necessary to implement this Total Force integration policy. 6. MAJCOMs. MAJCOMs will administer Total Force integration policy within their respective chains of command, to include the development of operational level concepts of operation (CONOPS) and memoranda of agreement (MOAs) or memoranda of understanding (MOUs). For operational level agreements, MAJCOMs may delegate signatory authority, as appropriate. ANG WG/CCs will coordinate through NGB prior to signing agreements with MAJCOMs. MAJCOMs collaborate with each other, ANG and AFRC, with AF/RE coordination, as appropriate, to foster new integration initiatives. With the exception of applicable Air Education and Training Command (AETC) total force integrated units, MAJ- COMs will coordinate all integration initiatives with the Air and Space Expeditionary Force (AEF) Center to ensure the units status is correctly portrayed in AEF UTC Reporting Tool (ART) and the Air Force s continued ability to support the joint warfighter using the AEF construct. Those applicable AETC ARC Unit Type Codes mentioned above are those with a home station mission such as Flying Training Squadrons, and Air Force Officer Accession Training Schools (AFOATS) Individual Mobilization Augmentees (IMAs). AFPD 10-9, Lead Operating Command Weapons System Management, identifies lead MAJCOM responsibilities for MDS Weapon Systems, both aircraft and non-aircraft entities. The lead command is responsible for development of the support and management agreements, such as CONOPS and MOUs, for the system, or systems. 7. National Guard Bureau (NGB). 10 U.S.C. 10501 states that NGB is the channel of communications on all matters pertaining to the National Guard between the Department of the Air Force and the several states. Accordingly, communications between the Air Force and the ANG of the States on all matters relating to Total Force integration will be coordinated through NGB, to include state agreements with MAJCOMs. The appropriate HAF offices and MAJCOM(s) will work together to foster new integration initiatives and coordinate lead MAJCOM integration implementation plans through AF/A8. 8. The Adjutants General (TAGs). TAGs exercise command and control over appropriate ANG units in their state or territory operating in state active duty status or under Title 32. TAGs report, as required
AFPD90-10 16 JUNE 2006 3 by the SECAF, on matters pertaining to Total Force integration in their respective states and territories. TAGs will coordinate integration initiatives through the NGB to AF/A8. 9. Air Force Units. Air Force units (RegAF, ANG and AFR) will execute the responsibilities levied upon them by their MAJCOMs and implement integration activities at the operational level, to include developing CONOPS, MOAs and MOUs. 10. Air Force Personnel. Innovative initiatives may come from all levels of the Air Force. Commanders and their subordinates: 10.1. Continually seek out new ways to constructively integrate Air Force operations, as well as refine and augment existing measures. 10.2. Cooperate with others to explore new opportunities to further the goals of Total Force integration and work out the details for integration implementation. 10.3. Keep their respective chains of command fully informed of Total Force integration initiatives throughout their conception and development. 11. Frameworks for Integration. Integration initiatives comply with one of five basic models: 11.1. Classic Associate. An integration model where a Regular Air Force component unit retains principal responsibility for weapon system or systems, which it shares with one or more reserve component units. Regular and reserve component units retain separate organizational structures and chains of command. Varying degrees of functional integration based on MOUs. 11.2. Active Associate. An integration model where a reserve component unit has principal responsibility for weapon system or systems, which it shares with one or more regular units. Reserve and regular component units retain separate organizational structures and chains of command. Varying degrees of functional integration based on MOUs. 11.2.1. Community Basing. A variation on the Active Associate model where regular component forces are garrisoned at a reserve component unit location. Support functions traditionally provided on a regular component installation (housing, medical, commissary, BX, etc) are instead available in the local community. 11.3. Air Reserve Components (ARC) Associate. An integration model where two or more ARC units integrate with one retaining principal responsibility for weapon system or systems, which are shared by all. Each unit retains separate organizational structures and chains of commands. Varying degrees of functional integration are based on MOUs. 11.4. Integrated Associate. An integration model similar to the classic associate model; however, members of all components contribute to one unit mission with administrative control and support provided by the respective component via detachments. 11.5. Fully Integrated. An integration model where members from different components comprise a single organization, falling under the same chain of command. Approval of pending legislation will make this option available at a later date. AF/A8 will provide an Interim Change to this document when approval occurs.
4 AFPD90-10 16 JUNE 2006 12. Integration Initiative Approval. MAJCOM Plans and Programs offices (or equivalent) act as the integration initiative clearinghouse for all units under their command. These offices are responsible for the implementation of integration initiatives through the use of detailed implementation plans that set forth policies and procedures. Specific policy and procedures are detailed in Air Force Instructions (AFIs) and supplements thereto. Implementation plans address the following objectives: 12.1. Describe the overall purpose and benefits to be achieved by the proposed integration. 12.1.1. Describe the organizational construct to be implemented, to include command relationships, operational command and control and administrative command and control. 12.1.2. Obtain MAJCOM legal review during initial concept development of an integration initiative. This preliminary legal review will address at a minimum the proposed mission, organizational structure, utilization of National Guard and Reserve personnel by category, and fiscal requirements. The MAJCOM JA shall coordinate with AF/JA regarding any initiative that raises significant legal or policy implications. AF/JA is responsible for further coordination with SAF/ GC as required. Note: this legal sufficiency review and approval is required prior to proceeding with the actual CONOPS document development or implementation. 12.1.3. Develop required implementation documentation such as CONOPS, MOAs or MOUs and Programming Plans. 12.1.4. Explain impacts to personnel such as relocation, realignment, changes in manpower requirements, and force mix. As a part of the personnel requirements description, the originator will detail the types of manpower categories, by component (i.e. active, AGR, technician, etc.), that are envisioned in the manning of this new organization. Operational indicators, at a minimum, include crew ratio; dwell times; absorption rates; and utilization rates. 12.1.5. Explain training implications to include any production surges required to integrate, as well as changes to production requirements and continuation training requirements post-integration. 12.1.6. Determine near-term budget and manpower requirements, long-term programming actions necessary for implementation, and proposed offsets, if investment capital or manpower is required. 12.1.7. Analyze AEF implications to include the units proposed capability to continue to support their AEF commitment, and any changes required in AEF Unit Type Code (UTC) libraries. 12.1.8. Describe the Agile Combat Support (including the Expeditionary Combat Support (ECS)) concepts for the affected weapon systems and capabilities. 12.1.9. Develop metrics for evaluating whether integration initiatives are creating the desired effects. The metrics should address the overall objectives of the proposed integration as stated in the implementation plan and also should address the objectives of other implementation documentation such as MOAs, MOUs and Support Agreements (SAs). 13. When integration initiatives involve ANG units, after obtaining legal review, the CSAF, or an appropriately designated representative, and the Governor, or an official with clear authority to act for the Governor in committing the state, will sign implementing MOUs in conjunction with the NGB.
AFPD90-10 16 JUNE 2006 5 14. See Attachment 1 for terms, related statutes, policies and directives implemented by this directive and the instructions implementing this policy. 15. See Attachment 2 for a diagram of the Headquarters Air Force integration initiative coordination process. Michael W. Wynne Secretary of the Air Force
6 AFPD90-10 16 JUNE 2006 Attachment 1 GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION References A1-1. This policy directive augments and complements AFPD 10-3, Air Reserve Component Forces, and its implementing instruction, AFI 10-301, Responsibilities for Air Reserve Component Forces. A1-2. Functional managers will, in addition to those issuances listed in paragraphs A1-3 and A1-4, consider all relevant guidance documents as they become situationally applicable. A1-3. Governing statutes policies and directives: A1-3.1. 10 U.S.C. 101, 167(b), 8013(b) et seq., 8031(a), 10102, 10110, 10111, 10112, 10113, 10174, 10202, 10216, 10305, 10501, 12301, 12310(b), 12406 A1-3.2. 31 U.S.C. 1301(a), 1535. A1-3.3. 32 U.S.C. 102, 109(b), 314(d), 317, 325(a)(2), 502, 709. A1-3.4. DoD Directives: A2-3.4.1. DoD Directive 1205.18, Full-Time Support (FTS) to the Reserve Components, 25 May 2000. Implemented by AF/RE in AFPD 36-21 and AFI 36-2132. A2-3.4.2. DoD Directive 1225.7, Reserve Component Facilities Programs and Unit Stationing, 6 Jun 2001. Implemented by SAF/IE in AFPD 32-10 and AFI 32-1012. A2-3.4.3. DoD Directive 1225.6, Equipping the Reserve Forces, 7 April 2005. Implemented by AF/IL in AFPD 10-3 and AFPD 10-4 as well as AFI 10-301 and AFI 10-402. A1-4. Additional guidance: A1-4.1. AFPD 10-9, Lead Operating Command Weapons Systems Management, 13 June 2000. A1-5. Authorities A1-5.1. The Secretary of the Air Force. 10 U.S.C. 8013 et seq. enumerates the various authorities of the Secretary of the Air Force, among other things, to conduct all affairs of the Department of the Air Force, formulate policies and programs, and prescribe regulations. A1-5.2. Adjutants General. 32 U.S.C. 314(d) stipulates that The adjutant general of each State shall make such returns and reports as the Secretary of the Air Force may prescribe. A1-5.3. National Guard Bureau. 10 U.S.C. 10501(b) states that, The National Guard Bureau is the channel of communications on all matters pertaining to the National Guard between the Department of the Air Force, and the several States. The Chief of the National Guard Bureau is the principal adviser to the Secretary and Chief of Staff of the Air Force on matters relating to the National Guard, and for Air Force matters is subject to their authority. AFPD 10-9, Lead Operating Command Weapons System Management, identifies lead MAJCOM responsibilities for MDS Weapon Systems, both aircraft and non-aircraft entities. The lead command (including ANG when designated as lead MAJCOM) is responsible for development of the support and management agreements, such as CONOPS and MOUs, for the system, or systems.
AFPD90-10 16 JUNE 2006 7 Abbreviations and Acronyms AEF Air and Space Expeditionary Force AETC Air Education and Training Command AFI Air Force Instruction AFPD Air Force Policy Directive AFR Air Force Reserve AFOATS Air Force Officer Accession Training Schools AFRC Air Force Reserve Command AGR Active Guard Reserve ANG Air National Guard ARC Air Reserve Components ART Air and Space Expeditionary Force Unit Type Code Reporting Tool CONOPS concepts of operation CSAF Chief of Staff of the Air Force ECS Expeditionary Combat Support HAF Headquarters Air Force IMA Individual Mobilization Augmentee MAJCOM major command MOA memoranda of agreement MOU memoranda of understanding NGB National Guard Bureau RegAF Regular Air Force SECAF Secretary of the Air Force TAG The Adjutant General UTC Unit Type Code Terms Agile Combat Support (ACS) The ability to create, protect and sustain air and space forces across the full range of military operations. It is the foundational and crosscutting USAF system of support that enables Air Force operational concepts and the capabilities that distinguish air and space power - speed, flexibility, and global perspective. Air Force As stated in 10 USC, Section 8062(d), The Air Force consists of (1) the Regular Air Force, the Air National Guard of the United States, the Air National Guard while in the service of the United States, and the Air Force Reserve; (2) all persons appointed or enlisted in, or conscripted into, the Air Force without component; and (3) all Air Force units and other Air Force organizations, with their
8 AFPD90-10 16 JUNE 2006 installations and supporting and auxiliary combat, training, administrative, and logistic elements; and all members of the Air Force, including those not assigned to units; necessary to form the basis for a complete and immediate mobilization for the national defense in the event of a national emergency. Air Force Reserve (AFR) A component of the Air Force constituted to provide a reserve for active duty. It includes all Reserves of the Air Force who are not members of the Air National Guard of the United States. Air Force Reserve Command (AFRC) A separate command of the Air Force to which is assigned all forces of the Air Force Reserve stationed in the continental United States other than forces assigned to the United States Special Operations Command (USSOCOM). Air National Guard (ANG) That part of the organized militia of the several States and Territories, Puerto Rico, and the District of Columbia, active and inactive, that is an Air Force; is trained, and has its officers appointed, under the sixteenth clause of section 8, article I, of the Constitution; is organized, armed, and equipped wholly or partly at federal expense; and is federally recognized. Air National Guard of the United States (ANGUS) A component of the Air Force all of whose members are members of the Air National Guard. Air Reserve Components (ARC) Air National Guard (ANG) and Air Force Reserve (AFR), together, comprise the ARC. Expeditionary Combat Support (ECS) A subset of ACS that responds quickly, is highly mobile, technologically superior, robust, flexible, and fully integrated with operations. ECS is the deployed ACS capability to provide persistent and effective support for the applications of Air and Space power on a global basis. Integration The process of harmonizing the organization of two or more Air Force component units (including Regular Air Force, Guard, and Reserve Components, civilians and contractors) in order to unify training, equipping, supply, recruiting, servicing, mobilizing, demobilizing, administering, maintaining, etc. National Guard The Army National Guard and the Air National Guard. Regular Air Force (RegAF) As stated in 10 USC, Section 8075, The Regular Air Force is the component of the Air Force that consists of persons whose continuous service on active duty in both peace and war is contemplated by law, and of retired members of the Regular Air Force. (b) The Regular Air Force includes -- (1) the officers and enlisted members of the Regular Air Force; (2) the professors, registrar, and cadets at the United States Air Force Academy; and (3) the retired officers and enlisted members of the Regular Air Force. Total Force Air Force effort to maximize combat capability and optimize force structure through a range of innovative organizational constructs and personnel policies implemented to optimize and integrate the capabilities of all Air Force components. As a fundamental element of Air Force transformation, the Total Force will create efficiencies, encourage retention of valuable human capital, and, above all, increase Air Force combat capabilities. Unit Type Code A Joint Chiefs of Staff developed and assigned code, consisting of five characters that uniquely identify a "typeunit."
AFPD90-10 16 JUNE 2006 9 Attachment 2 Figure A2.1. Integration Initiative Coordination Linkages NOTE: This depiction is intended to show the inter-relationships between the various contributors in the overall Total Force integration effort. Nothing in this chart is intended to suggest any abrogation of functional responsibilities by Secretariat, Air Staff, MAJCOM, state military department representatives, components of the units themselves.