Tài liệu Expanding Enlisted Lateral Entry - Options and Feasibility pptx

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iii
Preface
The current Department of Defense (DoD) Military Personnel
Human Resource Strategy is “to provide Human Resource policies,
programs, and legislation that ensure the right number of military
personnel have the requisite skills, abilities, and motivation to effec-
tively and efficiently execute assigned missions.” The strategy envi-
sions more widespread use of the concept of lateral entry to recruit
the appropriate number and quality of military personnel. Currently,
lateral entry is used selectively in certain military grades and occupa-
tions, and constructive credit is awarded for some combination of
education and experience. To support the use of lateral entry as part
of the new DoD Human Resource Strategy, it is necessary to develop
policies and plans that expand lateral entry and can be evaluated to
determine likely outcomes.
This report explores options for expanding a specific form of lat-
eral entry: lateral entry of non-prior-service personnel into enlisted,
active-duty occupations. It reviews existing programs, identifies the
potential goals of a lateral entry program, and presents an objective-
based framework to link them with specific program features. The
framework, developed in Chapter Two, is used in conjunction with
guidance from the sponsor about the primary goals of a lateral entry
program, given the current environment. The report analyzes relevant
data for Service occupations, generates a complementary program
design using the framework, and evaluates the feasibility of imple-
menting a lateral entry program with the current desired characteris-
iv Expanding Enlisted Lateral Entry
tics. The report offers conclusions and recommendations about
expansion of lateral entry programs.
This research was conducted for the Office of the Assistant Sec-
retary of Defense (Force Management Policy) within the Forces and
Resources Policy Center of the RAND Corporation’s National
Defense Research Institute, a federally funded research and develop-
ment center sponsored by the Office of the Secretary of Defense, the
Joint Staff, the unified commands, and the defense agencies. Corre-
spondence regarding this report should be sent to Dina Levy at
dlevy@rand.org or to Susan Everingham, Director of the Forces and
Resources Policy Center.
v
The RAND Corporation Quality Assurance Process
Peer review is an integral part of all RAND research projects. Prior to
publication, this document, as with all documents in the RAND
monograph series, was subject to a quality assurance process to ensure
that the research meets several standards, including the following:
The problem is well formulated; the research approach is well
designed and well executed; the data and assumptions are sound; the
findings are useful and advance knowledge; the implications and rec-
ommendations follow logically from the findings and are explained
thoroughly; the documentation is accurate, understandable, cogent,
and temperate in tone; the research demonstrates understanding of
related previous studies; and the research is relevant, objective, inde-
pendent, and balanced. Peer review is conducted by research profes-
sionals who were not members of the project team.
RAND routinely reviews and refines its quality assurance proc-
ess and also conducts periodic external and internal reviews of the
quality of its body of work. For additional details regarding the
RAND quality assurance process, visit http://www.rand.org/
standards/.

vii
Contents
Preface iii
The RAND Quality Assurance Process v
Tables ix
Summary xi
Acknowledgments xix
Abbreviations xxi
CHAPTER ONE
Introduction 1
Background 1
Past Studies of Lateral Entry 3
Current Military Lateral Entry Programs 5
Lateral Entry into the Civilian Sector 7
Approach 9
Organization of the Report 9
CHAPTER TWO
Lateral Entry Goals and Program Options 10
Potential Goals of a Lateral Entry Program 10
Reduce Training Costs 10
Fill Gaps in Personnel Profiles 11
Expand Recruiting Markets or Open New Markets 12
Preserve Unit Cohesion, Avoid Disruption of Culture 12
A Framework Linking Goals of Lateral Entry to Specific Program
Features 13
viii Expanding Enlisted Lateral Entry
Occupations 14
Entry Point 16
Implementation Scale, Flexibility 17
Incentives, Integration into Personnel Management Structure 22
Reducing Training Costs Is Principal Goal of Lateral Entry 23
CHAPTER THREE
Options for Expanding the Use of Lateral Entry to Reduce Training
Costs 25
Profile of a Candidate Program 25
Occupations with High Training Costs 26
Entrants with Advanced Training 27
Large Numbers of Lateral Entrants 27
Occupations with Low Civilian Earnings 28
Analysis of Occupations and Evaluation of Candidates 29
CHAPTER FOUR
Conclusions and Recommendations 37
Appendix 41
Bibliography 45
ix
Tables
2.1. Stated Goals and Occupation Selection Methods of Lateral Entry
Studies and Programs 14
2.2. Occupation Selection Criteria Corresponding to Lateral Entry
Goals and Constraints 15
2.3. Entry Requirements of Lateral Entry Programs Reviewed 16
2.4. Relationship Between Lateral Entry Goals and Training and
Experience Levels of Recruits 17
2.5. Number of Occupations and Percentage of Personnel Recruited
Laterally Through Reviewed Programs 19
2.6. Relationship Between Lateral Entry Goals and Percentage of
Recruits Entering Laterally 21
2.7. Relationship Between Lateral Entry Goals and Selected Enlistment
Incentives 23
3.1. Top 10 Percent of Army Occupations by Training Cost 31
3.2. Top 10 Percent of Navy Occupations by Training Cost 33
3.3. Top 10 Percent of Air Force Occupations by Training Cost 34
3.4. Employment and Earnings Data Projections 35
A.1. ACASP Occupational Specialties 41
A.2. DPEP Ratings 43
A.3. Canadian Forces Program Understrength Occupations 44

xi
Summary
Background
Most recruits into the U.S. military currently follow a set training
pattern upon entry: new-entry training followed by occupational
training. Some new recruits come to the military with advanced
training or experience acquired outside the military, but in many
cases the military retrains them in the same occupation or prepares
them for a different occupation altogether. Several possible explana-
tions exist for this seemingly inefficient practice. First, by choice, the
military operates as a closed system. Except for a few exempt com-
munities, recruits are expected to enter at the bottom, become accul-
turated, and complete service-provided training and experience to
advance within the system. Second, the U.S. military currently has
excess training capacity. Perhaps if the training capacity were limited
in its ability to support recruiting needs, bypassing training through
lateral entry of experienced personnel would be a more attractive
option. Third, lateral entry of civilians into high ranks could be dis-
ruptive to the military culture. Yet, some forms of lateral entry into
the military are accepted, including the awarding of advanced pay
grades to doctors and lawyers in the officer corps and to enlisted band
members based on nonmilitary training and experience. This report
explores options for expanding a specific form of lateral entry: lateral
entry of non-prior-service personnel into enlisted, active-duty occupa-
tions.
Several studies published in the 1990s explored the concept of
lateral entry in detail and concluded that many military occupations
are amenable to civilian training. In particular, occupations that are
xii Expanding Enlisted Lateral Entry
not combat related, have a clear civilian counterpart, and are sup-
ported by multiple civilian training programs are likely to be good
candidates (Winkler, Kirin, and Uebersax, 1992). In 1991, the Army
launched a pilot study of lateral entry into one occupation—Light
Wheeled Vehicle Mechanics (MOS 63B10). The study, which was
completed in 1997, demonstrated that high school and postsecondary
students with training in the occupation performed as well on an
MOS Qualification Test as their military counterparts. However, for
significant cost savings to be realized, a very large proportion of per-
sonnel would have to be recruited laterally without the benefit of
enlistment bonuses. Lateral entry of 63B10 mechanics was never
adopted into a formal program.
Only the Army and Navy have established lateral entry pro-
grams for enlisted occupations. The Army Civilian Acquired Skills
Program (ACASP) offers enlistment at advanced pay grades for 98
occupations. The Navy’s Direct Procurement Enlistment Program
(DPEP) is open to all Navy ratings. Applicants for both programs
must meet basic enlistment criteria as well as training and experience
requirements in a particular skill area. Despite their existence for well
over a decade, exceedingly few regular Army and Navy enlistments
occur through the two programs (less than one-half of 1 percent).
The Army plans to review ACASP, and the Navy is revisiting DPEP
as part of its Task Force Excel initiative. The Coast Guard is also set
to begin a pilot test of a new lateral entry program in the information
technology skill areas. The most successful program we reviewed,
however, is one recently implemented by the Canadian military. The
Canadian Forces program targets 20 understrength occupations and
offers enlistment bonuses to applicants who meet program require-
ments. This fiscal year-to-date, lateral entrants constitute more than
27 percent of recruits into the 20 occupations included in the pro-
gram. The occupations that accept lateral entrants through ACASP,
DPEP, and the Canadian Forces program are listed in the appendix.
Lateral entry is also used widely in the for-profit, nonprofit, and
public sectors. Across the country, lateral entry programs for K–12
teachers offer teaching credentials to applicants with relevant educa-
tion and experience following an abbreviated course of study. A large