Issue 69, 2nd Quarter 2013 Reorganizing National Security T ransnational Crime Threat Sea Power to Cyber Power JOINT FORCE QUARTERLY Inside Issue 69, 2nd Quarter 2013 Editor Col William T. Eliason, USAF (Ret.), Ph.D. JFQ Dialogue Executive Editor Jeffrey D. Smotherman, Ph.D. Supervisory Editor George C. Maerz From the Chairman 2 Production Supervisor Martin J. Peters, Jr. Senior Copy Editor Calvin B. Kelley Forum Copy Editor/Office Manager John J. Church, D.M.A Executive Summary Internet Publications Editor Joanna E. Seich 4 Executive Assistant Ryan Heggs, J.D. 6 Victory, Peace, and Justice: The Neglected Trinity Design Amy Ellis and Chris Dunham By Beatrice Heuser U.S. Government Printing Office Printed in St. Louis, Missouri Organization Theories: Perspectives on Changing National Security Institutions 13 by By Anthony J. DiBella 20 Goldcorp Crowdsourcing: An Industry Best Practice for the Intelligence Community? By Jesse Roy Wilson NDU Press is the National Defense University’s cross-component, professional military and Fostering Constructive Dialogue on Military Sexual Assault By Lindsay L. Rodman 25 academic publishing house. It publishes books, journals, policy briefs, occasional papers, Commentary monographs, and special reports on national security strategy, defense policy, interagency Confronting Transnational Organized Crime: Getting It Right to Forestall cooperation, national military strategy, regional 34 security affairs, and global strategic problems. a New National Security Threat By Douglas M. Fraser and Renee P. Novakoff This is the official U.S. Department of Defense Democracy Promotion in Oman By Diana M. Holland edition of JFQ. Any copyrighted portions of this 39 journal may not be reproduced or extracted without Restoring the “Unwritten Alliance”: Brazil-U.S. Relations permission of the copyright proprietors. Joint 42 Force Quarterly should be acknowledged whenever By Lawrence T. Brown material is quoted from or based on its content. 49 Joint Communications Support Element: The Voice Heard ’Round the World By Kirby E. Watson COMMUNICATIONS Command and Control Vulnerabilities to Communications Jamming Please visit NDU Press and Joint Force 56 Quarterly online at ndupress.ndu.edu for more By Ronald C. Wilgenbusch and Alan Heisig on upcoming issues, an electronic archive of JFQ articles, and access to many other useful NDU Press publications. Constructive com- ments and contributions are important to us. Please direct editorial communications to the link on the NDU Press Web site or write to: Editor, Joint Force Quarterly National Defense University Press 260 Fifth Avenue, S.W. (Building 64, Room 2504) Fort Lesley J. McNair Washington, DC 20319 Telephone: (202) 685-4220/DSN 325 FAX: (202) 685-4219/DSN 325 Email: [email protected] JFQ online: ndupress.ndu.edu 2nd Quarter, April 2013 ISSN 1070-0692 PUBLISHER Features GEN Martin E. Dempsey, USA An Interview with Samuel J. Locklear III PRESIDENT, NDU 64 MG Gregg F. Martin, USA NATO’s Level of Ambition: Beyond Strategic Reach By Dean A. Nowowiejski ADVISORY COMMITTEE 72 Maj Gen Joseph D. Brown IV, USAF Dwight D. Eisenhower From Sea Power to Cyber Power: Learning from the Past to Craft a School for National Security and Resource Strategy 78 RADM John N. Christenson, USN Naval War College Strategy for the Future By Kris E. Barcomb Brig Gen Thomas H. Deale, USAF Air Command and Staff College The Future of U.S. Landpower: Special Operations Versatility, Col Mark Desens, USMC Marine Corps Command 84 and Staff College Marine Corps Utility By Kevin D. Stringer and Katie M. Sizemore LtGen George J. Flynn, USMC The Joint Staff Ambassador James B. Foley National War College Maj Gen Scott M. Hanson, USAF Air War College Recall Col Jay L. Hatton, USMC Marine Corps War College LTG David G. Perkins, USA U.S. Army Command and The German Military Mission to Romania, 1940–1941 By Richard L. DiNardo General Staff College 92 LTG Curtis M. Scaparrotti, USA The Joint Staff ADM James G. Stavridis, USN U.S. European Command Book Reviews Maj Gen Joseph S. Ward, Jr., USAF Joint Forces Staff College The Generals Reviewed by Robert Bracknell 99 EDITORIAL BOARD The Generals Reviewed by Alan L. Gropman Richard K. Betts Columbia University 100 Stephen D. Chiabotti School of Advanced Air and Space Studies The Next Wave Reviewed by George Michael Eliot A. Cohen The Johns Hopkins University 101 COL Joseph J. Collins, USA (Ret.) National War College Mark J. Conversino Air War College Joint Doctrine Aaron L. Friedberg Princeton University Col Thomas C. Greenwood, USMC (Ret.) Office of the Secretary of Lead Turning the Fight: The Joint Operational Access Defense 103 Douglas N. Hime Naval War College Concept and Joint Doctrine By Gregory Kreuder Mark H. Jacobsen Marine Corps Command and Staff College Daniel T. Kuehl Information Resources Management College Redefining Information Operations By Carmine Cicalese Col David Lapan, USMC The Joint Staff 109 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.) ABOUT THE COVERS CONTRIBUTIONS Joint Force Quarterly welcomes submission of scholarly, independent Front cover: USS Laboon (DDG 58) arrives in Souda Bay, research from members of the Armed Forces, security policymakers Greece, to support maritime security operations and theater and shapers, defense analysts, academic specialists, and civilians security cooperation efforts in U.S. 6th Fleet area of respon- from the United States and abroad. Submit articles for consideration to the address on the opposite page or by email to [email protected] sibility (U.S. Navy/Paul Farley). Table of contents shows “Attention A&R Editor” in the subject line. For further information, th (left to right) C-130 Hercules with 107 Airlift Wing shoots see the guidelines on the NDU Press Web site at ndupress.ndu.edu. live flares during night formation training mission (U.S. Joint Force Quarterly is published by the National Defense University Air Force/Ray Lloyd); Strike Soldier prepares for realistic Press for the Chairman of the Joint Chiefs of Staff. JFQ is the combat environments during weapon malfunction train- Chairman’s flagship joint military and security studies journal ing session (U.S. Army/Joe Padula); lightning flashes on designed to inform members of the U.S. Armed Forces, allies, and horizon as USS Dwight D. Eisenhower (CVN 69) operates in other partners on joint and integrated operations; national security th policy and strategy; efforts to combat terrorism; homeland security; U.S. 5 Fleet area of responsibility (U.S. Navy/Greg Linder- and developments in training and joint professional military man); Marine and wife embrace during return ceremony education to transform America’s military and security apparatus to at Marine Corps Air Station Cherry Point, North Carolina meet tomorrow’s challenges better while protecting freedom today. (U.S. Marine Corps/Stephen T. Stewart). The opinions, conclusions, and recommendations expressed or implied within are those of the contributors and do not necessarily reflect the views of the Department of Defense or any other agency of the Federal Government. ndupress.ndu.edu From the Chairman Risky Business here is risk in daring. As asserted by Niccolò Machiavelli, “Never was anything great achieved without danger.” T DOD (D. Myles Cullen) Every day, the men and women of our Armed Forces dare to be great. Every day, they take risks to achieve something bigger and more important than themselves. It is the risk they willingly take that makes our nation great. We owe our good fortune to more than blind luck. Like no other profession, we pay attention to risk. We study it, forecast it, manage it, and seek to reduce it. We spend endless hours—even years—wargaming risk to our missions and to our forces. We simulate attacks and disasters. We rehearse responses to complex contingencies. We develop strategies and plans for a wide range Chairman and Admiral Samuel Locklear, commander of U.S. Pacific Command, meet at USPACOM of threats to our national security interests. Headquarters, Camp H.M. Smith, Hawaii, May 2012 As much art as science, judging risk is an essential skill for military professionals at every echelon. Right now, a pilot is judging around the world is higher. The conse- a national expectation, while upholding our risk as she climbs into a cockpit. An infantry quences—albeit horrific for those at the point values is part of our national identity. Reliable platoon is doing it while on patrol. A ship’s of attack—are relatively insignificant in terms allies also help to distribute risk. captain is doing it while navigating in the of national survival. Arabian Gulf. In my role as Chairman, I Probability and consequence are What Risks Are Out There? have a statutory responsibility to explain risk not easily measured, and they do not paint The risks to our national security inter- to our senior civilian leaders, the President, the whole picture. It is just as important to ests are real. They are broad and run deep. and Congress. I want to share some thoughts think about how risk changes over time and From a security standpoint, I see risk in the about risk with you as well. what opportunities might be available if we context of a security paradox. To paraphrase accept risk. Cyber attacks, for example, are Charles Dickens, it is the best of times, it is How to Think about Risk becoming more frequent and more disrup- the worst of times. Ancient societies viewed life as subject tive every day. Destructive cyber is a reality. We serve at a time that seems less to arbitrary forces. The discovery of prob- In today’s world, bits and bytes can be as dangerous, but may be more so.