Assessment Of DoD Wounded Warrior Matters: Selection And Training Of .

IntroductionIntroductionBackgroundThe Military Services formed the Wounded Warrior programs because of theincreased number of service member casualties incurred during military operationsin Iraq and Afghanistan. Initial programs were formed as early as 2004 and 2005.The programs further developed following media and congressional interestover Wounded Warrior issues identified at Walter Reed Army Medical Center1 inFebruary 2007.Since then, there have been many oversight hearings, specialcommissions, task forces, and reports related to Wounded Warrior recovery,rehabilitation, and reintegration.While the criteria for admission into Wounded Warrior programs vary somewhatby Service, there are similarities across these programs.All programs assistWounded Warriors who are navigating through the complex DoD and Departmentof Veterans Affairs (VA) disability evaluation processes.education, and readiness transition support.and/ornon-clinicalcasemanagement.TheThey all provide career,Most provide care coordinationArmyprovidesclinicalcasemanagement within the Warrior Transition Unit while the other Services provideit through the medical treatment facility. The overall objective of Wounded Warriorprograms is to “ensure wounded, ill, injured and transitioning service membersreceive high quality care and seamless transition support.”2In June 2010, the DoD IG’s Office of Special Plans and Operations began a series ofsite assessment visits to Army Warrior Transition Units (WTUs) and Marine CorpsWounded Warrior Battalions (WWBns).The purpose was to “determine whetherDoD programs for the care, management, and transition of recovering servicemembers wounded during deployment in Operation Iraqi Freedom or OperationEnduring Freedom were managed effectively and efficiently.”12The 2005 Defense Base Realignment and Closure (BRAC) Commission recommended that DoD establish a new WalterReed National Military Medical Center (WRNMMC) on the site of the current National Naval Medical Center (NNMC) inBethesda, Maryland. The last patients at Walter Reed Army Medical Center were transported August 27, 2011 to the newlocation at WRNMMC.DoD Office of Warrior Care Policy -100 1

IntroductionThe DoD IG has published seven reports to date related to Wounded Warrior programsbased on site assessments of four Army and two Marine Corps Wounded Warrior units. Fort Sam Houston, Texas; March 17, 2011, Fort Drum, New York; September 30, 2011, Camp Lejeune, North Carolina; March 30, 2012, Wounded Warrior Battalion - West Headquarters and Southern CaliforniaUnits; August 22, 2012, Joint Base Lewis-McChord, Washington; May 31, 2013, Fort Riley, Kansas; August 6, 2013, and Managing Risks of Multiple Medications; February 21, 2014.Our reports can be viewed at http://www.dodig.mil/pubs/index.cfm.We noted systemic issues and challenges with the selection and training of WTU andWWBn leaders and cadre at the four Army and two Marine Corps Wounded Warriorunits visited.ObjectiveThe objective of this assessment was to determine whether the United States Armyand the United States Marine Corps had policies and procedures in place to ensurethe selection and training of appropriate personnel to fill leadership and cadrepositions within the Army WTUs and Marine Corps WWBns.ScopeWe conducted this assessment from March 2012 through December 2013.Itspecifically addresses the selection and training of Army WTU and Marine CorpsWWBn leaders and cadre based on data collection and as observed duringfieldwork.This assessment also draws conclusions from observations previouslymade in DoD IG reports about policies and practices of the United States Army andthe United States Marine Corps resulting from visits to four Army and two MarineCorps Wounded Warrior units.2 DODIG-2014-100

IntroductionMethodologyWe reviewed documents such as DoD directives and instructions; Service-levelpolicies and practices such as Army regulations, policy memorandums, All ArmyActivities (ALARACTs), fragmentary orders (FRAGOs), and execution orders (EXORDs),and United States Marine Corps orders (MCOs) pertinent to the topics of selectionand training of leaders and cadre in the Wounded Warrior population. We reviewedinformation from previous Wounded Warrior assessments. We obtained informationthrough research and requests for information (RFIs) regarding current selectionand training practices. Additionally, we conducted semi-structured interviews usinga judgmental sample of selected cohorts of Army WTU and Marine Corps WWBnofficers and enlisted personnel in leadership positions, and wounded, ill, and injuredSoldiers and Marines in WTUs and WWBns.DODIG-2014-100 3

Significant ProgressSignificant ProgressUnited States Army Warrior Transition CommandDuring our assessment, we identified significant issues in the selection andassignment of the “best fit” and most qualified Soldiers to fill WTU cadre positions.As a result of our assessment in this area and discussions on-site with WoundedWarrior Transition Command (WTC) and WTU leaders, the Army WTC subsequentlyissued stricter and more consistent detailed guidance on the identification, screening,selection, and assignment of personnel for WTU cadre positions.It is too earlyto measure the effectiveness of the guidance issued January 15, 2014,3 but the newdirection taken by WTC meets our previous concerns regarding this issue.United States Marine Corps - Wounded WarriorRegimentDuring our assessment, we identified that the Wounded Warrior Regiment (WWR)lacked a more formalized training program for the WWBn Section Leaders.As aresult of our assessment in this area and discussions on site with WWR and WWBnleaders, the United States Marine Corps WWR subsequently issued stricter andmore consistent detailed guidance on WWBn Section Leader training.It is tooearly to measure the effectiveness of the guidance issued October 21, 2013,4 butthe formalization of WWBn Section Leader training by the WWR meets ourprevious concerns regarding this issue.34Warrior Care and Transition Program (WCTP) Policy Memo 14-001, “Policy Memorandum - Warrior Transition Unit (WTU)/Community Based Warrior Transition Unit (CBWTU) Cadre Assignments,” January 15, 2014.Wounded Warrior Regiment Policy Letter 3-13, “Wounded Warrior Regiment Section Leader Training,” October 21, 2013.DODIG-2014-100 5

Observation 1Observation 1Lack of Dedicated Army Medical Department Center &School Instructor StaffingThe Army Medical Department Center & School (AMEDDC&S)5 did not havefull-time, authorized instructor staff to provide standardized training for newlyassigned leaders and cadre to Warrior Transition Units (WTUs), as well as toCommunity-Based Warrior Transition Units (CBWTUs). 6This occurred because the AMEDDC&S has not received a Table of Distributionand Allowances (TDA)7 authorization for designated full-time instructor positions,which were previously determined to be cost prohibitive.Rather, the programrelied on civilian and military personnel detailed from other Army agencies servingas trainers in secondary assignments.The lack of a dedicated instructor staff resulted in training program courseinconsistency and lack of continuity, and has limited development of roup,andrealisticscenario-based training that would have better prepared leaders and cadre fortheir challenging WTU assignments.567The Army Medical Department Center & School (AMEDDC&S) located at Joint Base San Antonio, Fort Sam Houston, Texas.Community Based Warrior Transition Units will be inactivated and replaced by Community Care Units (CCUs) as part ofthe Warrior Care and Transition Program Force Structure Implementation, Headquarters, US Army Medical Command,Operation Order, 14-24, February 2014.TDA is an authorization document developed for non-doctrinal units that prescribes the organizational structure and thepersonnel and equipment requirements and authorizations of a military unit to perform a specific mission for which thereis no appropriate Table of Organization and Equipment.Applicable Criteria (Appendix E)FRAGO 3 to Operational Order (OPORD) 07-055, “MEDCOM Implementation of theArmy Medical Action Plan (AMAP),”8 June 2007.Warrior Care and Transition Program (WTCP) Policy Memo, 14-001, munityTransition Unit (CBWTU) Cadre Assignments,” January 15, 2014.8BasedWarriorIn the 2008 Army Posture Statement Information Paper, the Army Medical Action Plan (AMAP) establishes an integratedand comprehensive continuum of care and services for Warriors in Transition. The AMAP was developed in 2007, andincluded ten “Quick Wins” for implementation across the Army. Item six identifies development of training and doctrine.DODIG-2014-100 7

Observation 1BackgroundThe AMEDDC&S is the only mandated WTU cadre training site for the Army.Under AMEDDC&S, the Academy of Health Sciences (AHS) is the medical educationand training campus, conducting 315 programs of instruction. In August 2007, theAHS was tasked with the development and deployment of the WTU cadre trainingrequirement.During the initial planning stages of the training program, AHSconducted a business case analysis9 to determine how best to meet the staffingrequirements of the program.Based on their initial analysis and training throughout, AHS concluded it wouldbe cost prohibitive to have a staff of full-time instructors at the AHS.Therefore,the AHS decided to use a model that included borrowing subject matter experts (SMEs)from other agencies to teach specific course material.DiscussionThe AMEDC&S WTU Cadre Training Program lacked dedicated instructor staff toprovide standardized training for newly assigned leaders and cadre.The current TDA for the AMEDDC&S WTU Cadre Training Program established theprogram director position as the only authorized permanent staff position for theprogram, functioning as both the department head and program director. Additionalstaffing was comprised of a contracted administrative specialist and senior trainingspecialist, 2 mobilized SNCOs, and 30 to 40 SME instructors detailed from theirprimary assignments at the AHS, where they performed their principal day-to-dayduties. The 30 to 40 detailed instructors were on loan only temporarily to teachcourses in the WTU Cadre Training Program.In our discussions with WTC leaders and WTU cadre training staff, they indicatedthat a major impediment to further progress in the AMEDDC&S’s WTU Cadre TrainingProgram was the lack of sufficient, dedicated instructor staff and resources toeffectively operate a more robust training program that could appropriately supportthe size and needs of in-resident cadre students.98 DODIG-2014-100A business case analysis is the evaluation of alternative solutions for obtaining best value, while achieving operationalrequirements balancing cost, schedule, performance, and risk.

Observation 1Warrior Transition Unit Cadre Training Program FactsOver the past 5 years, the AMEDDC&S has conducted 10 classes per year, withan average class size of approximately 100 students.4thFrom 2009 through theQuarter of FY 2013, a total of 4,731 students graduated from the program.The January 15, 2014, “WTU/CBWTU Cadre Assignments Policy Memorandum”10established requirements for cadre to attend training preferably before, but notlater than 60 days after assuming their WTU cadre duties.This reinforcesthe requirement for a larger, fully dedicated instructor staff to manage the largerclass sizes.Lack of Sufficient Dedicated Instructor Positions and Impact onStudent TrainingBased on class size alone, the high student-to-instructor ratio limited the director’sability to conduct small group training, such as role playing and scenario-driventeam exercises.Such training would expose prospective WTU leaders and cadrestudents to a range of situations they would likely encounter, and to techniquesfor managing those situations appropriately.Having a dedicated staff withexperience to simulate such scenarios and conduct small group training wouldgreatly enhance the effectiveness of the training.In previous DoD IG Wounded Warrior reports,11 WTU leaders and cadre indicatedthat many of the Soldiers assigned to the WTUs had Post-Traumatic Stress Disorder(PTSD)12/Traumatic Brain Injury (TBI) and behavioral health issues. At one location,WTU leaders estimated that 60 percent of WTU Soldiers had behavioral healthissues, and an estimated 40 percent of Soldiers had PTSD and/or TBI symptoms.Given the prevalence of these medical conditions, WTB leaders and staff recognizedthe need for additional training to more properly prepare them for their challengingrole in managing the diverse needs of the Soldiers assigned to the WTUs. Additionaltraining topics proposed included:101112Warrior Care and Transition Program (WCTP) Policy Memo 14-001, “Policy Memorandum - Warrior Transition Unit (WTU)/Community Based Warrior Transition Unit (CBWTU) Cadre Assignments,” January 15, 2014.Report No. SPO-2011-010, “Assessment of DoD Wounded Warrior Matters - Fort Drum,” September 30, 2011, and ReportNo. DoDIG-2013-087, “Assessment of DoD Wounded Warrior Matters - Joint Base Lewis-McChord,” May 31, 2013.Post-traumatic stress disorder (PTSD) is a mental health condition that is triggered by a terrifying event. Symptoms mayinclude flashbacks, nightmares and severe anxiety, as well as uncontrollable thoughts about the event.DODIG-2014-100 9

Observation 1 increased behavioral health familiarization training and incorporated roleplaying scenarios, team building exercises, staff stress reduction and resiliency training, administrative and medical management issues, and communication and counseling skills.A dedicated team of permanently assigned instructors, as proposed, would enablethe program director to incorporate these worthy recommendations.Army Planning for a Full-time StaffIn FY 2012, U.S. Army Medical Command (MEDCOM) completed a manpower reviewand analysis that highlighted the requirement for increased staffing based onthe high instructor-to-student ratios and the lack of an Army-approved TDAfor the WTU Cadre Training Program.The manpower review concluded that AHS required at least 13 dedicated staffinstructor positions for the WTU Cadre Training Program.On October 25, 2013,the Assistant Secretary of the Army (Manpower and Reserve Affairs) issued amemorandum regarding “Validation of the AMEDDC&S Manpower OrganizationalStudy.” The response validated 11 of the 13 required WTU cadre training positions.As of May 20, 2014, the U.S. Army Manpower Analysis Agency (USAMAA) andthe AMEDC&S were still working on a solution for the dedicated staff instructorpositions congruent with the results of the manpower study.ConclusionPrevious DoD IG Wounded Warrior reports identified the need for focused training toequip WTU leaders and cadre with the right skills needed to deal effectively with theunique WTU mission challenges. Training of WTU leaders and cadre at the AMEDDC&Scontinues to improve and evolve. However, inadequate staffing and the need for aTDA authorizing the necessary full-time training instructor staff positions remains a10 DODIG-2014-100

Observation 1significant impediment to further progress needed in the development of the WTUCadre Training Program.The lack of a dedicated instructor staff has prevented or limited the incorporationof scenario-based training, such as role playing, hands-on training, and smallgroup sessions into the course of instruction, improvements which would enablecadre to be better prepared to effectively cope with the unique WTU operationalenvironment and assist Soldiers and their families.RecommendationsRecommendation 1.aCommander, U.S. Army Medical Command, take action to meet the instructorstaffing requirements for the Warrior Transition Unit Cadre Training Programin response to the October 25, 2013, memorandum from the Assistant Secretaryof the Army (Manpower and Reserve Affairs), subject “Validation of theU.S. Army Medical Department Center & School Manpower Organizational Study.”Commander, U.S. Army Medical Command CommentsCommander, U.S. Army MEDCOM concurred with comment to the recommendation.Based on additional data and information submitted by the AMEDDC&S, theU.S. Army Manpower Analysis Agency approved 13 instructor requirements for theDepartment of Warrior Transition Units (WTU Cadre Training Program).Our ResponseComments from the Commander, U.S. Army MEDCOM are responsive and the actionsmeet the intent of the recommendation. No additional comments are required.Recommendation 1.bCommander, Warrior Transition Command, in coordination with Commander,Army Medical Department Center & School, assess instructor-to-student staffingratios for Warrior Transition Unit Cadre Training Program to identify instructorDODIG-2014-100 11

Observation 1shortfalls and initiate action to request formal manpower reviews as neededto meet mission requirements.Commander, Warrior Transition Command CommentsCommander, WTC concurred with comment to the recommendation. The WTC andAMEDDC&S continue to work together to assess WTU Cadre Training Program needsand initiate actions to meet mission requirements.Our ResponseComments from the Commander, WTC are responsive and the actions meet theintent of the recommendation. We acknowledge the ongoing efforts by the WTC andAMEDDC&S to ensure appropriate instructor staffing ratios are maintained andthat training is focused to equip WTU leaders and cadre with the right skills to dealeffectively with the unique WTU mission challenges. We may choose to assess theWTU Cadre Training Program instructor-to-student staffing ratios and its impact to theoverall WTU Cadre Training Program effectiveness in the future.12 DODIG-2014-100

Observation 2Observation 2Shortcomings in Marine Corps Wounded WarriorBattalion Assignment ProcessBoth Wounded Warrior Battalions (WWBns) - East and West - relied on ReserveIndividual Mobilization Augmentee (IMA)13 Marines to staff the majority of SNCO andNCO leadership positions.This occurred because of IMA staff turnover and personnel shortages. The use ofReserve IMAs under Overseas Contingency Operations (OCO) funding was a temporarysolution, and was dependent on the willingness of IMA volunteers and the availabilityof annual OCO funds.As a result, the number of personnel serving in WWBn leadership positions wasunpredictable and unlikely to provide consistent support for the recovery, rehabilitation,and reintegration of wounded, ill, and injured Marines.13Individual Mobilization Augmentees (IMAs) are indiv

the selection and training of appropriately qualified personnel to fill leadership and cadre positions for Army Warrior Transition Units (WTUs) and Marine Corps Wounded Warrior Battalions (WWBns). This is a follow-on assessment. During our six Wounded Warrior site visits and previously . issued assessment reports, we noted systemic