Issue 73, 2nd Quarter 2014 JOINT FORCE QUARTERLY Evolving Theory I SSUE for Cyberspace S EVENTY Educating Future -THREE, 2 Strategic Leaders ND Next Steps QUARTER 2014 in Targeting Joint Force Quarterly Founded in 1993 • Vol. 73, 2nd Quarter 2014 http://ndupress.ndu.edu 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): Airman from 336th Fighter Squadron performs Missing Man Pull-up in flyover during internment ceremony of Brigadier General Robinson Risner at Arlington National Cemetery (U.S. Air Force); Marines reload M777 howitzer with 155 mm artillery shell during multiple-rounds fire mission as part of 2-day dual-fire training exercise at Schofield Barracks, Hawaii (U.S. Marine Corps/Matthew Bragg); UH-60M Black Hawk helicopter pilot and commander of C Company “War Lords,” 2nd Battalion (Assault), 10th Combat Aviation Brigade, Task Force Knighthawk, prepares cockpit prior to launching on personnel movement mission at Kabul International Airport (U.S. Army/Peter Smedberg). About the Cover In this Issue U.S. Navy divers assigned to Mobile Diving and Salvage Unit Dialogue 2, Company 2-2, lowered into water January 9, 2014, from 2 Letter Military Sealift Command rescue 4 In Memoriam and salvage ship USNS Grasp to search for missing Sailor of MH- 6 From the Chairman 53E Sea Dragon helicopter that 8 Are We Really Ever Off Duty? went down off coast of Virginia (U.S. Navy/Wyatt Huggett). Forum 10 Executive Summary 12 The Joint Force Commander’s Guide to Cyberspace Operations Joint Doctrine By Brett T. Williams 76 Sun Tzu in Contemporary Chinese Strategy 123 Cross-Domain Synergy: 20 Achieving Accountability By Fumio Ota Advancing Jointness in Cyberspace: Revolution By William O. Odom and or Evolution? 81 Geography Matters in Christopher D. Hayes By John N.T. Shanahan Maintaining Global Mobility By William M. Fraser III and 26 Combined Effects Power Marshall N. Ramsey By Ervin J. Rokke, Thomas A. Joint Force Quarterly is published by the National Defense University Press for the Chairman of the Drohan, and Terry C. Pierce Joint Chiefs of Staff. JFQ is the Chairman’s flagship Features joint military and security studies journal designed 32 Information-Sharing with to inform members of the U.S. Armed Forces, 86 Reflections on Operation allies, and other partners on joint and integrated the Private Sector Unified Protector operations; national security policy and strategy; By Veronica A. Chinn, Lee T. By Todd R. Phinney efforts to combat terrorism; homeland security; Furches, and Barian A. Woodward and developments in training and joint professional military education to transform America’s military and 93 Silent Watch: The Role of security apparatus to meet tomorrow’s challenges better while protecting freedom today. JPME Today Army Air and Missile Defense By Michael S. Tucker and NDU Press is the National Defense University’s 39 “Break Out”: A Plan for Better Robert W. Lyons cross-component, professional military and academic Equipping the Nation’s publishing house. Future Strategic Leaders 99 Leveraging U.S. Civilian The opinions, conclusions, and recommendations expressed or implied within are those of the By Gregg F. Martin and Capabilities in Africa contributors and do not necessarily reflect the views John W. Yaeger By Charles D. “Buck” McDermott of the Department of Defense or any other agency of the Federal Government. 44 Green Peace: Can Biofuels 105 The Case for the Junior Submissions and Communications Accelerate Energy Security? Joint Logistics Officer JFQ welcomes submission of scholarly, independent research from members of the Armed Forces, security By John E. Gay Training Program policymakers and shapers, defense analysts, academic specialists, and civilians from the United States and st By Wilson T. VornDick 52 Shaping a 21 -Century abroad. Submit articles for consideration by email to Defense Strategy: [email protected], with “Attention A&R Editor” in the subject line. Or write to: Reconciling Military Roles Recall By William G. Braun III 111 Dieppe All Over Again: The Editor, Joint Force Quarterly and Charles D. Allen Quandaries of Combined NDU Press 260 Fifth Avenue (Building 64, Room 2504) Joint Operations Fort Lesley J. McNair 60 Targeting the JIIM Way: A Washington, DC 20319 More Inclusive Approach By Harald Høiback Telephone: (202) 685-4220/DSN 325 By John Bilas, Scott A. Hoffman, Email: [email protected] John S. Kolasheski, Kevin Book Reviews JFQ online: www.dtic.mil/doctrine/jfq/jfq.htm Toner, and Douglas Winton 118 Bolívar 2nd Quarter, April 2014 ISSN 1070-0692 Reviewed by Alan Gropman Commentary 68 Airpower and Globalization 119 The Revenge of Geography Effects: Rethinking Reviewed by Francis P. Sempa the Five Rings 120 Intelligence Collection By Michael W. Pietrucha Reviewed by Todd M. Manyx Police barrier at pro–European Union rally in Kiev attended by over 100,000, November 24, 2013 (Flickr/Ivan Bandura) Letter o the Editor: I write in response dragged through the streets or hung Churchill’s statement mentioned in their to Derek S. Reveron and James from a bridge, the Obama administration own article: “The statesman who yields T L. Cook’s article “From National would have quickly learned whether the to war fever must realize that once the to Theater: Developing Strategy” that American public was ready to see U.S. signal is given, he is no longer the master appeared in Joint Force Quarterly 70 Servicemembers dying for this cause. of policy but the slave of unforeseeable (3rd Quarter 2013). I agree whole- Looking back to March 27, 1999, in and uncontrollable events.” With a near- heartedly with the authors on their Serbia, when Lieutenant Colonel Dale peer adversary, it would not be surprising position that only “vital” national Zelko, flying an F-117A stealth fighter, if missile strikes triggered counterstrikes interests are worth dying for. However, was shot down by an SA-3 missile, we against U.S. forces or territory. But even I caution against accepting their idea should recognize that anytime American with a lesser foe, asymmetric warfare that national interests that are (merely) air crews fly into a combat zone, they might be employed to retaliate against “important” are necessarily worth risk being unable to fly home from that America in a way that caused casualties. killing for. mission. I suggest manned air strikes Second, if the country we strike has To begin, air strikes by manned should be flown only when U.S. vital na- not attacked the United States or an aircraft carry risks. Reveron and Cook tional interests are at stake since the crews ally—or we do not have a United Nations posit the 2011 North Atlantic Treaty risk death and cannot kill with absolute (UN) Security Council Resolution autho- Organization air campaign to prevent impunity. rizing the use of force against them—the genocide in Libya as worth killing for, It might be tempting to argue that United States would be committing but not worth dying for. But we have unmanned aircraft, cruise missiles, or bal- an illicit act of aggression that would to keep in mind that Major Kenneth listic missiles do not carry that same risk technically constitute initiating an act of Harney and Captain Tyler Stark had to and might satisfy this new criterion of im- war. While UN Ambassador and Pulitzer eject from their F-15E over Libya on portant interests that are worth killing for Prize–winner Samantha Power is an advo- March 21, 2011. If we had not safely but not worth dying for. That would be a cate of “R2P” (a responsibility to protect extracted them, and, instead, the U.S. grave error for at least two reasons. First, against genocide, war crimes, crimes public had watched video of their bodies the authors should consider Winston against humanity, and ethnic cleansing), 2 Dialogue / Letter JFQ 73, 2nd Quarter 2014 the third pillar of the R2P global norm unanimously adopted by heads of state and government at the 2005 UN World Summit states, “If a State is manifestly failing to protect its populations, the in- ternational community must be prepared to take appropriate collective action, in a timely and decisive manner and in accor- dance with the UN Charter.” In other words, R2P is expected to use the other instruments of national power, rather than military force, except when a UN Security Council Resolution authorizes that use of force.