JOINT FORCE QUARTERLY Issue 41, 2d Quarter 2006 Published for the Chairman of the Joint Chiefs of Staff by National Defense University Integrated Operations National War College 60th Anniversary Interagency Dialogue: Strategic Planning for U.S. National Security A PROFESSION A L M I L I T A R Y A N D S ECURITY JOURN A L Inside Issue 41, 2d Quarter 2006 Departments 1 A Word from the Chairman 5 From the Editor 6 Letters to the Editor JFQ 58 Strategic Studies Notes Editor-in-Chief Stephen J. Flanagan, PhD Director, Institute for National Strategic Studies 94 Book Reviews Editor Col Merrick E. Krause, USAF Director, NDU Press JFQ Forum Managing Editor, NDU Press COL Debra Taylor, USA Deputy Director, NDU Press 8 Integrated Operations: Executive Summary Managing Editor, JFQ Col David H. Gurney, USMC (Ret.) Executive Editor Jeffrey D. Smotherman, PhD 10 Planning Lessons from Afghanistan and Iraq by Joseph J. Collins Supervisory Editor George C. Maerz Production Supervisor Martin J. Peters, Jr. 15 Combating Terrorism: A Socio-Economic Strategy by Miemie Winn Byrd Senior Copyeditor Calvin B. Kelley Book Review Editor Lisa M. Yambrick 20 Integrating Partner Nations into Coalition Operations by Barbara Fick Information Manager TSgt Ayanna F. Woods, USAF Design U.S. Government Printing Office Creative Services 26 Are We Ready for an Interagency Combatant Command? by Christopher L. Naler 32 Orchestrating Instruments of Power for Nationbuilding by Henry W. Stratman Joint Force Quarterly is published by the National Defense University Press for the Chairman of the Joint Chiefs of Staff. JFQ is the Chairman’s flagship joint military and security studies journal designed to inform members of the U.S. Armed Special Feature Forces, allies, and other partners on joint and integrated operations; national security policy and strategy; efforts to 38 America’s National War College: Sixty Years of Educating Strategic Thinkers combat terrorism; homeland security; and developments in training and joint professional military education to transform America’s military and security apparatus to better meet 40 A School for Strategy: The Early Years by Janet Breslin-Smith tomorrow’s challenges while protecting freedom today. NDU Press produces JFQ four times a year. The 45 The Legend of George F. Kennan by Paul B. Thompson goal of NDU Press is to provide defense and interagency decisionmakers, allies, and the attentive public with attractive, balanced, and thoroughly researched professional publications. 48 International Colleagues at the National War College by Miguel Ricardo Reyes Cordero NDU Press is the National Defense University’s cross- component, professional, military, and academic publishing house. It publishes books, policy briefs, occasional papers, monographs, and special reports on national security strategy, Commentary defense policy, national military strategy, regional security affairs, and global strategic problems. NDU Press is part of the 51 Effects-Based Operations: A Critique by Milan N. Vego Institute for National Strategic Studies, a policy research and strategic gaming organization. Features This is the authoritative, official U.S. Department of Defense edition of JFQ. Any copyrighted portions of this journal may not be reproduced or extracted without 60 The “Golden Hour” Standard: Transforming Combat Health Support permission of the copyright proprietors. Joint Force Quarterly should be acknowledged whenever material is quoted from or by Guy S. Strawder based on its content. 68 Integrated Coercive Strategies and the Role of the Air Component CONTRIBUTIONS by Merrick E. Krause Joint Force Quarterly welcomes submission of scholarly, independent research from members of the Armed Forces, security policymakers and shapers, defense analysts, academic 76 Joint Logistics in the Future by C.V. Christianson specialists, and civilians from the United States and abroad. Submit articles for consideration to the address below or by email to [email protected] “Attention A&R Editor” in the subject Interagency Dialogue line. For further information see the guidelines on the NDU Press Web site at ndupress.ndu.edu. 80 Strategic Planning for National Security: A New Project Solarium COMMUNICATIONS Please visit NDU Press and Joint Force Quarterly online at by Mich`ele A. Flournoy and Shawn W. Brimley ndupress.ndu.edu for more on upcoming issues, an electronic archive of JFQ articles, and access to many other useful NDU Press publications. Constructive comments and contributions Recall are important to us. Please direct editorial communications to the electronic feedback form on the NDU Press Web site or write to: 87 Custer and Cognition by David C. Gompert and Richard L. Kugler Editor, Joint Force Quarterly National Defense University Press The opinions, conclusions, and recommendations expressed or implied within are those of the contributors and do 300 Fifth Avenue not necessarily reflect the views of the Department of Defense or any other agency of the Federal Government. Fort Lesley J. McNair Washington, DC 20319-5066 ABOUT THE COVERS Telephone: (202) 685-4220/DSN 325 FAX: (202) 685-4219/DSN 325 The cover shows U.S. Army specialist from the 1st Armored Division conducting a combat security patrol with Email: [email protected] Iraqi police in Tal Afar (1st Combat Camera Squadron/Aaron Allmon). The table of contents depicts Special JFQ online: ndupress.ndu.edu Forces in Afghanistan (DOD). The back cover features Guatemalan soldiers saluting Secretary of Defense Rumsfeld in Guatemala City (1st Combat Camera Squadron/Cherie Thurlby); Multinational convoy operating 2d Quarter, April 2006 in the Pacific, Exercise Panamax ’05 (4th Combat Camera Squadron/Rick Sforza); Marines securing area along Amazon River, Exercise UNITAS ’04 (Fleet Combat Camera, Atlantic/Dave Fliesen); F–35 Short Take-off and ISSN 1559-6702 Vertical Landing (STOVL) variant: and Navy’s FSF–1 during test operations (U.S. Navy/Rachel Bonilla). ndupress.ndu.edu A PROFESSION A L M I L I TA R Y Download cover as computer wallpaper at ndupress.ndu.edu. A N D S ECURITY JOURN A L A Word from the Chairman The Chairman and Secretary of Defense teleconference with GEN George W. Casey, USA, Commander, Multi-National Force–Iraq, about the success of Iraqi elections DOD (Helene C. Stikkel) ooking back on my first 6 months interagency, coalition, and nongovernmental guidance to the Joint Staff (published in JFQ, as Chairman, I am impressed partners to succeed. issue 40, 1st quarter 2006), we must marshal with the ability of our Soldiers, My predecessor, General Richard the enablers of organizational agility, collabo- L Sailors, Airmen, Marines, and Myers, coined the term integrated opera- ration, and outreach if the Nation is to win Coastguardsmen, who confront challenges tions to emphasize that the military must act the war on terror. such as counterinsurgency and nationbuild- in concert with a wide variety of actors to Although the opening examples come ing operations in Iraq and Afghanistan, attain national objectives. Indeed, we must from recent contingencies, integrated opera- earthquake relief in Pakistan, and hurricane seek out new partners—governmental agen- tions are not new. Counterdrug operations in relief in our own Gulf States. Though seem- cies, nongovernmental organizations, allies, Latin America provide a more mature look ingly disparate, these operations share an industry, and the private sector—to defeat at integrated operations in that they enjoy important characteristic: they all require modern transnational threats. I wholeheart- the strength of established relationships and the coordinated efforts of a wide range of edly endorse this approach. As I stated in my standing organizations, such as the Joint ndupress.ndu.edu issue 41, 2 d quarter 2006 / JFQ 1 relief operations in late 2005, economic and infrastructure recovery considerations clearly dominated the effort. In fact, most national- level concerns fell squarely on other agencies with portfolios such as health, housing, transportation, energy, and the environment. Beyond disaster relief operations, diplomatic, informational, and economic considerations often determine success in preconflict and postconflict operations abroad. Second, mission requirements often dictate the need for diverse skill sets and authorities. The Intelligence Community offers an excellent example of this point. The Central Intelligence Agency, for example, provides intelligence collection and all-source intelligence analysis (centered on human intelligence), while the National Security Royal Netherlands sailors arriving Agency was chartered to supply primarily in Biloxi, Mississippi, to support technical intelligence collection (signals Hurricane Katrina relief intelligence). The Services also employ intel- ligence assets specifically tailored to their operational needs and missions. Finally, other groups—even those outside the formal Intelligence Community— may enjoy expertise and relationships that impart valuable information. Each of these diverse partners reveals a piece of the larger intelligence puzzle. In Iraq, we have brought them together to enhance the intelligence picture from the tactical to the strategic level. Similarly, the success of JIATF–S flows from an ability to harness the agency with the right expertise and authority to accomplish a particular aspect of the larger counterdrug mission. For example, the law-enforcement components of JIATF–S retain greater author- ity to conduct search and seizure operations, unlike the supporting