Issue 72, 1st Quarter 2014 JOINT FORCE QUARTERLY JPME Today Godzilla Methodology China’s Role in I SSUE Afghanistan S EVENTY-TWO, 1 EVENTY-TWO, ST QUARTER 2014 Joint Force Quarterly Founded in 1993 • Vol. 72, 1st Quarter 2014 www.ndu.edu/press/index.html GEN Martin E. Dempsey, USA, Publisher MG Gregg F. Martin, USA, President, NDU Editor in Chief Col William T. Eliason, USAF (Ret.), Ph.D. Executive Editor Jeffrey D. Smotherman, Ph.D. Production Editor John J. Church, D.M.A. Internet Publications Editor Joanna E. Seich Photography Editor Martin J. Peters, Jr. Senior Copy Editor Calvin B. Kelley Art Director Marco Marchegiani, U.S. Government Printing Office Advisory Committee BG Guy T. Cosentino, USA/National War College; MG Anthony A. Cucolo III, USA/U.S. Army War College; Brig Gen Thomas H. Deale, USAF/Air Command and Staff College; Col Mark J. Desens, USMC/Marine Corps Command and Staff College; Lt Gen David L. Goldfein, USAF/The Joint Staff; BGen Thomas A. Gorry, USMC/ Dwight D. Eisenhower School for National Security and Resource Strategy; Maj Gen Scott M. Hanson, USAF/ Air War College; Col Jay L. Hatton, USMC/ Marine Corps War College; LTG David G. Perkins, USA/U.S. Army Command and General Staff College; RDML John W. Smith, Jr., USN/Joint Forces Staff College; LtGen Thomas D. Waldhauser, USMC/The Joint Staff Editorial Board Richard K. Betts/Columbia University; Stephen D. Chiabotti/School of Advanced Air and Space Studies; Eliot A. Cohen/The Johns Hopkins University; COL Joseph J. Collins, USA (Ret.)/National War College; Mark J. Conversino/Air War College; Thomas P. Ehrhard/Office of the Secretary of Defense; Aaron L. Friedberg/Princeton University; Col Thomas C. Greenwood, USMC (Ret.)/Office of the Secretary of Defense; Douglas N. Hime/Naval War College; Mark H. Jacobsen/Marine Corps Command and Staff College; Col Jerome M. Lynes, USMC (Ret.)/The Joint Staff; Kathleen Mahoney-Norris/Air Command and Staff College; Thomas L. McNaugher/Georgetown University; Col Mark Pizzo, USMC (Ret.)/National War College; James A. Schear/Office of the Secretary of Defense; LtGen Bernard E. Trainor, USMC (Ret.) Printed in St. Louis, Missouri, by Cover 2 images (top to bottom): Soldier fires tube-launched, optically tracked, wire-guided missile at heavy weapons range on Forward Operating Base Salerno, Afghanistan (U.S. Army/Todd A. Christopherson); crew chief dedicated for RQ-4 Global Hawk attaches Dash-95 air cart, which provides air to starter for launch of unmanned aircraft system (U.S. Air Force/Bennie J. Davis III); and Sailors prepare F/A-18E Super Hornet to launch from USS George Washington, providing combat-ready force that protects and defends collective maritime interest of United States and its allies and partners in Indo-Asia-Pacific region (U.S. Navy/Ricardo R. Guzman). About the Cover In this Issue Marines with Weapons Company, 3rd Battalion, 8th Dialogue Marine Regiment prepare to board MV-22 Osprey during 2 Letter Tactical Recovery of Aircraft and 3 In Memoriam Personnel mission at Marine Corps Base Camp Upshur, 4 From the Chairman VA, November 26, 2013, in 6 Backbone of the Armed Forces preparation for deployment (USMC/Ed Galo). Forum 8 Executive Summary 10 The Role of Professional Military Education in Mission Command Joint Doctrine By Nicholas Murray 65 Cut Defense Pork, Revive Presidential Impoundment 106 Security Cooperation: 14 The Pen and the Sword: Faculty By Lawrence Spinetta How It All Fits Management Challenges By Taylor P. White in the Mixed Cultural Environment of a War College Features By George E. Reed 69 Biometric-enabled Intelligence in Regional Command–East 21 Putting “A Cooperative Strategy Joint Force Quarterly is published by the National By David Pendall and Cal Sieg st Defense University Press for the Chairman of the for 21 Century Seapower” to Joint Chiefs of Staff. JFQ is the Chairman’s flagship Work: A Wargaming Perspective 75 Strategic Implications of the joint military and security studies journal designed to inform members of the U.S. Armed Forces, By Jeffrey M. Shaw Afghan Mother Lode and allies, and other partners on joint and integrated China’s Emerging Role operations; national security policy and strategy; 26 Godzilla Methodology: Means for efforts to combat terrorism; homeland security; By Cindy A. Hurst and Robert Mathers and developments in training and joint professional Determining Center of Gravity military education to transform America’s military and By James P. Butler 82 Improving Safety in security apparatus to meet tomorrow’s challenges the U.S. Arctic better while protecting freedom today. 31 Improving DOD Adaptability By Heath C. Roscoe, Paul F. NDU Press is the National Defense University’s and Capability to Survive Campagna, and Dave McNulty cross-component, professional military and academic Black Swan Events publishing house. st The opinions, conclusions, and recommendations By William R. Burns and Drew Miller 88 Forging a 21 -century Military expressed or implied within are those of the Strategy: Leveraging Challenges contributors and do not necessarily reflect the views By Robbin F. Laird, Edward T. of the Department of Defense or any other agency of Special Feature Timperlake, and Murielle Delaporte the Federal Government. 39 Strategy for Intelligence, Submissions and Communications Surveillance, and JFQ welcomes submission of scholarly, independent Recall research from members of the Armed Forces, security Reconnaissance policymakers and shapers, defense analysts, academic specialists, and civilians from the United States and By Jason M. Brown 96 Learning and Adapting: Billy abroad. Submit articles for consideration by email to Mitchell in World War I [email protected], with “Attention A&R Editor” in the 47 The Joint Stealth Task By Bert Frandsen subject line. Or write to: Force: An Operational Concept for Air-Sea Battle Editor, Joint Force Quarterly Book Reviews NDU Press By Harry Foster 260 Fifth Avenue (Building 64, Room 2504) 102 Foreign Powers and Intervention Fort Lesley J. McNair 54 Unifying Our Vision: Joint in Armed Conflicts Washington, DC 20319 ISR Coordination and the Reviewed by David A. Anderson Telephone: (202) 685-4220/DSN 325 NATO Joint ISR Initiative Email: [email protected] JFQ online: www.dtic.mil/doctrine/jfq/jfq.htm By Matthew J. Martin 103 The Tender Soldier st Reviewed by Michael C. Davies 1 Quarter, January 2014 ISSN 1070-0692 Commentary 104 Useful Enemies 61 “Gallantry and Intrepidity”: Reviewed by William A. Taylor Valor Decorations in Current and Past Conflicts By Eileen Chollet Letter n Joint Force Quarterly 71 (4th have not changed, much less been trans- against potential regional intercontinental Quarter 2013), Karen Kaya offers formed; NATO remains a nuclear alliance ballistic missiles (ICBMs). The admin- I a number of perspectives on the and indeed has chosen in recent years istration of George W. Bush accelerated North Atlantic Treaty Organization’s not to make fundamental changes to its and expanded this effort, though to infer (NATO’s) evolving missile defense nuclear deterrence mission. Thus, missile that this was a resurrection of the SDI project, in particular those shaping Tur- defense is best viewed as complementing program is mistaken. Kaya is correct that key’s calculations as it works to define the nuclear deterrence mission, hopefully the missile capabilities of North Korea its role. Ms. Kaya makes a numbers of providing new opportunities for burden- and Iran were the principal concerns, but observations that merit comment. sharing and enhanced decisionmaking she does not make clear that it was those Irrational Actors and Extended flexibility in a crisis. If the Alliance deter- nations’ potential development of ICBMs Deterrence. Kaya is right to suggest that mines one day that missile defense and that drove the program—and less so some new actors who may present strate- other nonnuclear strategic capabilities their continued investment in short-, me- gic threats to NATO may prove difficult can replace nuclear-sharing arrangements dium-, and intermediate-range missiles. to deter, and while one cannot rule out as the core of extended deterrence, that To fully address the potential ICBM the possibility of an adversary that truly truly would be transformational. But that threat from Iran, the second Bush admin- acts without regard to costs, risks, and seems a distant prospect. istration promoted a so-called Third Site benefits, the main challenge to deterrence History. Kaya’s brief historical refer- in Eastern Europe (to complement two is not the irrationality of adversaries but ences are not fully accurate and less than U.S.-based sites). The agreement reached rather, properly understanding their complete. It is true that the Reagan-era with Poland and the Czech Republic was strategic intentions, capabilities, deci- Strategic Defense Initiative (SDI) was for the deployment, respectively, of 10 sionmaking, and degree of commitment. a source of friction between the United two-stage ground-based interceptors and Certainly, an adversary’s development of States and Soviet Union, though whether a sophisticated X-Band radar. The Patriot asymmetric strategies and its preparedness it ever precipitated a crisis in relations is missiles Ms. Kaya refers to were not part to pay a high price in pursuit of advantage debatable. SDI certainly was controversial, of the Third Site. They were essentially or victory can hardly be considered hall- in part because of its cost, but the reori- a sweetener for Warsaw under which the marks of irrationality. Kaya is closer to the entation of the U.S. approach to missile United States agreed to deploy Patriots to mark when she later states that missile de- defense was driven principally by the end Poland and train Polish units in their oper- fense provides the means to add a denial of the Cold War and the emergence of ation. These missiles, of course, provided component to traditional deterrent strat- regional missile threats, exemplified at the no protection against Iranian ICBMs.