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JFQ13C1 12/9/96 9:04 AM Page 1 JFQJOINT FORCE QUARTERLY THE GOLDWATER-NICHOLS ACT Ten Years Later 21st Century Military NBC Proliferation Knowledge-Based Warfare Decisive Force Autumn96 A PROFESSIONAL MILITARY JOURNAL 0213C2 12/9/96 9:19 AM Page C2 service forces assigned to a joint force provide an array of combat power from which the joint force commander chooses — Joint Pub 1, Joint Warfare of the Armed Forces of the United States Cov 2 JFQ / Autumn 1996 Prelims 12/9/96 9:24 AM Page 1 JFQ AWord from the Chairman Today, we often take the post-Cold War successes of our Armed Forces for granted. From Haiti to Bosnia, to the Taiwan Strait, to Liberia, to the skies over Iraq, they have achieved great suc- cess at minimal cost in nearly fifty operations since Desert Storm. Quality people, superior organization, unity of com- mand, and considerable skill in joint and combined operations have been central to that achievement. All these factors owe a great debt to the Gold- water-Nichols DOD Reorgani- zation Act of 1986, whose 10th anniversary is celebrated in this issue of JFQ. Indeed, the effects of Goldwater-Nichols have been so imbedded in the military that many members of the Armed Forces no longer remem- ber the organizational problems that brought about this law. As recently as the early 1980s, while we had begun to rebuild capabilities DOD (Paul Caron) the effects of Goldwater-Nichols and overcome the Visiting Aviano have been so imbedded that Vietnam syndrome, Air Base, Italy. numerous events re- many no longer remember the minded us that mili- organizational problems that tary organization had changed little since brought about this law World War II. Despite the skill and dedica- tion of our men and women in uniform as well as a significant per- centage of national resources, we often came up short. As late as the early 1980s, notwithstanding the Reagan-era defense buildup, the Armed Forces (continued on page 4) Autumn 1996 / JFQ 1 Prelims 12/9/96 9:24 AM Page 2 I CONTENTS 1 A Word from the Chairman I JFQ FOURM by John M. Shalikashvili 9 The Goldwater-Nichols Act: Ten Years Later I FROM THE FIELD AND FLEET 7 Letters to the Editor 10 Taking Stock of Goldwater-Nichols by James R. Locher III 18 Defense Organization Today by John P. White 23 Past Organizational Problems THE by David C. Jones GOLDWATER-NICHOLS 29 The Chairman as Principal Military Adviser: ACT An Interview with Colin L. Powell Ten Years Later 37 Overseeing Cross-Service Trade Offs by William A. Owens and James R. Blaker 41 Next Steps in Joint Force Integration by John J. Sheehan PHOTO CREDITS 48 Warfighting CINCs in a The cover features soldiers of 325th Airborne New Era Battalion Combat Team on patrol outside Tuzla by Joseph W. Prueher Air Base (U.S. Army/Larry Lane). The front inside cover photos demonstrate (clockwise, from top left) KC–135 refueling 53 Emergence of the Joint F–16Ds (U.S. Air Force/Mike Reinhardt), USS La Moure County at Guantanamo Bay Officer (U.S. Navy/Lou Caporaletti, Jr.), marines with by Howard D. Graves and Don M. Snider raft fast-dropping (U.S. Marine Corps), and 1st Armor Division heading for Srebenica (U.S. Army/Larry Lane). 58 Prospects for the Military The table of contents photos above show Departments (clockwise, from top left) landing craft off Rota, Spain (U.S. Navy/Stephen H. Kless), M–1 tank by Michael B. Donley (U.S. Marine Corps), naval battle group under- way (U.S. Navy), and F–16s at Luke Air Force 63 Base (U.S. Air Force/Val Gempis). The photo on Future Trends in Defense the opposite page catches Senator Nunn accompanied by Secretary Perry troop- Organization ing the line at a review in his honor on July 12, 1996 (DOD/Helene Stikkel). The back inside cover captures FA–18s aboard USS Independence off Thailand by Sam Nunn during Cobra Gold ’95 (U.S. Air Force/ Don Green). The back cover depicts (clockwise, from top) C–130 (U.S. Air Force/ I with sidebar comments by Archie D. Barrett, Val Gempis), UH–60 Blackhawk (U.S. Army/Penny Parker), Marine light armored vehicles (U.S. Navy/Jeffrey S. Viano), and dock landing ship USS Ashland Carl E. Mundy, Paul F. Gorman, and (U.S. Navy). Edward C. Meyer 2 JFQ / Autumn 1996 Prelims 12/9/96 9:24 AM Page 3 AUTUMN 96 / NUMBER 13 I 90 It’s Not About Mousetraps— 67 A Strategic Assessment for Measuring the Value of the 21st Century Knowledge for Operators by Hans Binnendijk by Frank B. Strickland, Jr. 69 21st Century Armed Forces— 97 Leadership: Some Thoughts Joint Vision 2010 on the Military Circa 2025 by Charles D. Link by David E. Price 74 The Impact of NBC I OF CHIEFS AND CHAIRMEN Proliferation on Doctrine 100 Dwight David Eisenhower and Operations by Robert G. Joseph I THE JOINT WORLD 101 Exercises and Doctrine I OFF THE SHELF 104 National Culture and Warfare— Whither Decisive Force: A Review Essay by David J. Andre 109 To Wage a War of Words: A Book Review 81 Knowledge-Based Warfare: A Security Strategy for the by Carnes Lord Next Century 111 Middle Eastern Military by Lawrence E. Casper, Irving L. Halter, Dynamics: A Book Review Earl W. Powers, Paul J. Selva, by Patrick L. Clawson Thomas W. Steffens, and T. LaMar Willis Joint Force Quarterly Hans Binnendijk Robert A. Silano Patrick M. Cronin Director Editor Acting Director for Strategy and Policy Analysis Institute for National Strategic Studies Institute for National Strategic Studies Editor-in-Chief James R. Locher III Consulting Editor Contributing Editor (Issue 13) Martin J. Peters, Jr. Calvin B. Kelley Production Coordinator William A. Rawley Copy Editor Typography and Design Division U.S. Government Printing Office JFQ is published for the Chairman of the Joint Chiefs of Staff topics of common interest to the Armed Forces (see page 112 by the Institute for National Strategic Studies, National De- Art Director for details). Please direct all editorial communications to: fense University, to promote understanding of the integrated Editor, Joint Force Quarterly employment of land, sea, air, space, and special operations portions of this journal may not be reproduced or extracted ATTN: NDU–NSS–JFQ forces. The journal focuses on joint doctrine, coalition warfare, without permission of copyright proprietors. An acknowledg- 300 Fifth Avenue (Bldg. 62) contingency planning, combat operations conducted by the ment to Joint Force Quarterly should be made whenever mate- Fort Lesley J. McNair unified commands, and joint force development. rial is quoted from or based on its contents. Washington, D.C. 20319–5066 The opinions, conclusions, and recommendations ex- This publication has been approved by the Secretary of pressed or implied within are those of the contributors and do Defense. Telephone: (202) 685–4220 / DSN 325–4220 not necessarily reflect the views of the Department of Defense The editors invite articles and other contributions on joint FAX: (202) 685–4219 / DSN 325–4219 or any other agency of the Federal Government. Copyrighted warfighting, interservice issues that support jointness, and E-Mail: [email protected] Internet: http://www.dtic.mil/doctrine ISSN 1070–0692 October 1996 Autumn 1996 / JFQ 3 Prelims 12/9/96 9:24 AM Page 4 Joint Force Quarterly I A WORD FROM THE CHAIRMAN GEN John M. Shalikashvili, USA (continued from page 1) Publisher were occasionally inefficient, even ineffective, in ADVISORY COMMITTEE conducting joint operations. In 1980, despite considerable heroism, we Lt Gen Ervin J. Rokke, USAF I National Defense University Chairman failed to rescue the American hostages in Iran. We aborted a troubled mission primarily due to equip- BG David A. Armstrong, USA (Ret.) I Office of the Chairman ment failures, but planning and organization were VADM Dennis C. Blair, USN I The Joint Staff also problematical. In 1983 a successful rescue op- eration in Grenada exposed weaknesses in organiz- MG Richard A. Chilcoat, USA I U.S. Army War College ing and conducting joint operations on short-no- A. Denis Clift I Joint Military Intelligence College tice. We encountered severe organizational Col K.A. Conry, USMC I Marine Corps Command and Staff College challenges at the staff level, difficulty delivering routine fire support, and problems communicating MG John S. Cowings, USA I Industrial College of the Armed Forces among units of different services. While the assault BG Robert F. Dees, USA I The Joint Staff met with only limited resistance, it resulted in 18 Col Jerry M. Drennan, USAF I Air Command and Staff College Americans killed and over a hundred wounded. The 1982 report of the Chairman of the Joint BG Joseph R. Inge, USA I U.S. Army Command and General Staff College Chiefs of Staff Study Group on The Organization Col Paul V. Kelly, USMC I Marine Corps War College and Functions of the JCS documented what had be- come painfully obvious to operators: “The military Brig Gen William R. Looney III, USAF I Armed Forces Staff College organizations given the responsibility for the plan- RADM Michael A. McDevitt, USN I National War College ning and execution of joint activities...simply Maj Gen D. Bruce Smith, USAF I Air War College [did] not have the authority, stature, trained per- sonnel, or support needed to carry out their jobs I RADM James R. Stark, USN Naval War College effectively.” A number of observers added that these organizational problems seemed to be an in- EDITORIAL BOARD tegral part of how we had gone to war throughout Hans Binnendijk I National Defense University our history.