The U.S. Army’s current recruiting crisis is the symptom of a broad disconnect between the civilian population and America’s armed forces. Despite frequent news coverage of military operations, the American public really has no idea what each branch of service does, and the younger generation does not see the armed forces as a viable option for employment.
There are several layers to this problem; however, specific roadblocks steered the Army to where it is today, and minor tweaks could help the cause.
Post-9/11 security requirements, and changing legal regulations, have caused the military to become disconnected from its surrounding communities as if service members are a protected class. This directly correlates to the recruiting challenges the services are facing now.
In recent years, due to significant pressure from senior leaders, the Army has attempted to reconnect with the American public through various forms of engagement and outreach, but the executors of these activities are hamstrung by old and outdated regulations and policies.
I am currently director of the Commander’s Planning Group at the Fires Center of Excellence and Fort Sill, Oklahoma, which is just north of Lawton, Oklahoma. A big responsibility under the Commander’s Planning Group is public affairs and community relations. Our region used to have a program called the “Lawton-Fort Sill Co-Op,” which cemented relationships between the installation and its bordering city. A little over 10 years ago, the co-op was disbanded due to some legal issues, and our community relations have struggled ever since.
The local community felt slighted, and, after the legal issues, command teams were hesitant to reestablish anything formal for fear of breaking some sort of regulation, code or statute. In 2020, the commanding general of Fort Sill saw this gap and wanted to reinitiate a community relations program, this one called “Frontier Teams.”
We have had some decent success, but we still find ourselves limited by the current set of regulations, codes and statutes that puts roadblocks at every intersection. The regulations, codes and statutes are overly restrictive and do not allow commanders to make decisions that are within their risk tolerance and purview.
Legal Roadblocks
Senior Army leaders are imploring soldiers to get out into their communities and tell the Army story. If one reads Army Regulation (AR) 360-1: The Army Public Affairs Program, it sounds easy to do, but when combined with the legal regulations that govern what the military can and can’t do, it becomes increasingly difficult. DoD’s Joint Ethics Regulation, the Code of Federal Regulations and DoD’s Financial Management Regulations, along with other codes and statutes, often bring community relations to a grinding halt or, at a minimum, make those executing this mission feel like we are operating in a gray area while trying to execute the intent of senior leaders across the Army.
Fort Sill has amazing relationships with the communities in southwest Oklahoma, and we execute numerous community relations and outreach events and engagements across the region, but the amount of effort required to navigate the labyrinth of regulations, codes and statues is often limiting.
Community outreach is invaluable for fostering a positive military image that ultimately increases people’s willingness to serve. Yet the current guidelines outlined in the Joint Ethics Regulation, Code of Federal Regulations, Financial Management Regulations and other codes and statutes often hinder these efforts. These regulations are in place to prevent conflicts of interest and maintain the integrity of the military; however, their restrictive nature has had unintended consequences—limiting meaningful interactions between the military and the communities it serves.
What I am discussing is in no way taking a swipe at Army lawyers. The Army’s administrative law teams are doing the best they can, and they are simply providing legal advice and opinions that are in line with current regulations, codes and statutes. The lawyers at the Fires Center of Excellence and Fort Sill have expended significant time and energy to move mountains for us to conduct meaningful community outreach.
However, some commonsense updates to regulations, codes and/or statutes would allow military lawyers to focus efforts on more pressing administrative or criminal legal matters. Not only that, but those updates would unleash the true power of community relations and allow those executing this vital mission to operate at the extremely fast pace that the current environment demands.
Connection Problems
Following are some observations as to why the military is not connecting with the civilian population, which directly impacts recruiting and the propensity to serve:
1. Restrictive community relations: Current regulations often limit the military’s involvement in community events or collaborations. This not only distances the military from the community, but also creates a perception that it is isolated or indifferent to local concerns. Commanders are not empowered to act due to fear of breaking regulations. Currently, under AR 601-2: Army Recruiting Support Programs, there is no affirmative authority for commands at echelon to conduct recruiting-type activities without taking direction from U.S. Army Recruiting Command. Further, the Army awareness campaign objectives listed under AR 601-2 are neither clear nor expansive (or inclusive) enough to include community engagement or influencing events.
2. Endorsement limitations: While it’s understandable that the military should not be seen as favoring or promoting specific brands or companies, current regulations often prevent service members from participating in events or initiatives that are sponsored by external entities, especially if the service members are operating in an official capacity. This denies the military numerous opportunities to be involved in community-driven events, which often are funded by local businesses or national corporations. The regulations are so restrictive that the simple gesture of a command team providing a certificate of appreciation to a local business or nonprofit is now seen as an endorsement, or could be perceived as an endorsement. Long ago, those types of gestures helped build bridges between the local community and military units.
3. Gift guidelines: Since 1993, the Joint Ethics Regulation and Code of Federal Regulations individual gift limits of $20 per occurrence and $50 per fiscal year have remained static, even as the world around them has dramatically changed. These limits fail to account for three decades of inflation and the consequent rise in costs of everyday items and services. This outdated model is especially limiting for military members who wish to participate in community events sponsored by nonfederal entities, as even a simple meal often exceeds the gift limit. There are numerous local businesses, nonprofits and individual community members who want to support military installations, units and/or organizations that don’t because of the complex and ambiguous nature of current regulations. Additionally, current regulations prohibit the Army, outside of Directorate of Family, Morale, Welfare and Recreation channels, from soliciting for support.
Suggested Changes
To genuinely foster community relations in support of recruiting, I propose the following updates:
1. Redefine community engagement parameters: While the essence of the Joint Ethics Regulation, Code of Federal Regulations, Financial Management Regulations, codes and statutes is essential, a more nuanced approach is needed. There should be clear guidelines that allow for community involvement without compromising the ethical stance of the military.
This includes attending community events, participating in educational outreach and being present at local initiatives.
A lot of this is already outlined in AR 360-1, but when there is further legal review, there are often conflicts with the Joint Ethics Regulation, Code of Federal Regulations, codes or statutes. One simple solution could be for the Army and/or DoD to provide affirmative regulatory authority that commands, at echelon, can utilize appropriated funds on specific recruitment and outreach engagement efforts, to include marketing, including on social media.
Furthermore, specific directives through DoD and Army regulations, listing community engagement as an official mission set for Army commands, would make it even easier. They would allow Army organizations to plan, prepare and execute community engagements as official events, thereby alleviating the requirement to apply the Joint Ethics Regulation nonfederal entity limited logistical factors. The directives would need to be codified to include private organizations that have a casual link to the Army’s overall recruitment, accession and community relations lines of effort. Even better than regulations would be an affirmative statutory authorization through the National Defense Authorization Act.
2. Revise endorsement guidelines: Endorsing select nonfederal entities and nonprofit businesses can provide the military with a robust avenue for bolstering community relations and enhancing recruiting efforts. This strategy mirrors the recent changes in college sports, where name, image and likeness deals now permit athletes to align with brands. These endorsements offer athletes financial opportunities while elevating brand profiles.
Similarly, modernizing the Joint Ethics Regulation and Code of Federal Regulations could pave the way for the military to adapt to contemporary societal norms and cultivate more organic, relatable connections with the public. Such a shift would acknowledge that the previously established regulations, while designed for a different era, might be excessively restrictive in today’s dynamic, interconnected and rapidly changing world.
By fostering these alliances, the military can both support valuable community projects and resonate more deeply with potential recruits. Just one example of nonprofits that a local installation should be able to endorse, or promote, is off-post mental health providers, which already see military service members and their families. The Cohen Veterans Network recently opened the Steven A. Cohen Military Family Clinic at Red Rock in Lawton, providing mental health services exclusively to active-duty military service members, their families and veterans. The Cohen Clinic can receive referrals from Fort Sill’s local military medical treatment facility.
All that said, Fort Sill cannot officially promote and/or endorse the Cohen Clinic or its services. The question the military should be asking is, why can’t it endorse a nonfederal entity that benefits service members and their families? The answer is, because the Joint Ethics Regulation prohibits the military from endorsing nonfederal entities. Could endorsement and/or promotion of off-post mental health services save a life? The answer is unequivocally yes.
This is just one example of where a vetted endorsement could benefit both the Army and the community. One counterargument to this endorsement concept is the real possibility of an endorsed nonfederal entity or nonprofit doing something that is negative or counter to the Army Values. Just as with private industry, endorsements could be publicly withdrawn at any time if deemed necessary.
3. Revise gift guidelines: An inflationary clause attached to the gift guidelines would be a sensible update, ensuring that the limits evolve with the times and allow military members greater flexibility and involvement in community events. Additionally, there must be an easier way for local businesses, nonprofits and/or individual community members to provide support to their local installation through a standardized gift process that does not necessarily require wading through mountains of red tape and restrictions. The current methods are outdated, antiquated and overly restrictive. This process must be streamlined.
Solving the Army’s recruiting crisis is not about quick fixes. It requires a profound understanding of societal shifts, economic realities and the evolving nature of warfare and military roles. I have addressed only one aspect of a larger holistic approach that needs to take place.
Senior leaders are telling soldiers to get out into our communities and tell the Army story to help with recruiting. Let’s make commonsense changes that allow us to do so more easily and effectively.
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Lt. Col. Daniel Threlkeld is a field artillery officer serving as director of the Commander’s Planning Group at the Fires Center of Excellence and Fort Sill, Oklahoma. Previously, he commanded the 2nd Battalion, 20th Field Artillery Regiment, 75th Field Artillery Brigade, Fort Sill. He served five combat deployments across the Middle East.