Issue 86, 3rd Quarter 2017 JOINT FORCE QUARTERLY On Strategy Itself An Interview with Kurt W. Tidd Where Rumsfeld Got It Right ISSUE EIGHTY-SIX, 3 ISSUE EIGHTY-SIX, RD QUARTER 2017 Joint Force Quarterly Founded in 1993 • Vol. 86, 3rd Quarter 2017 http://ndupress.ndu.edu Gen Joseph F. Dunford, Jr., USMC, Publisher MajGen Frederick M. Padilla, USMC, 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 Book Review Editor Frank G. Hoffman, Ph.D. Associate Editor Patricia Strait, Ph.D. Art Director Marco Marchegiani, U.S. Government Printing Office Intern Aidan M. Low Advisory Committee COL Michael S. Bell, USA (Ret.), Ph.D./College of International Security Affairs; Brig Gen Christopher A. Coffelt, USAF/Air War College; Col David J. Eskelund, USMC/Marine Corps War College; BG Paul H. Fredenburgh III, USA/Dwight D. Eisenhower School for National Security and Resource Strategy; RADM Janice M. Hamby, USN (Ret.)/College of Information and Cyberspace; RADM Jeffrey A. Harley, USN/U.S. Naval War College; Brig Gen Darren E. Hartford, USAF/National War College; Brig Gen (Sel) Brian E. Hastings, USAF/Air Command and Staff College; LTG Michael D. Lundy, USA/U.S. Army Command and General Staff College; LTG William C. Mayville, Jr., USA/The Joint Staff; Col William McCollough, USMC/Marine Corps Command and Staff College; MG William E. Rapp, USA/U.S. Army War College; RDML Jeffrey Ruth/Joint Forces Staff College; VADM Kevin D. Scott, USN/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.)/ Center for Complex Operations; Richard L. DiNardo/Marine Corps Command and Staff College; Aaron L. Friedberg/Princeton University; Bryon Greenwald/Joint Forces Staff College; Douglas N. Hime/Naval War 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; LtGen Bernard E. Trainor, USMC (Ret.); Bert B. Tussing/U.S. Army War College Printed in St. Louis, Missouri, by Cover 2 images (top to bottom): Logistics Specialist 1st Class Amber Wilson reacts to being selected as 2016 CNO Shore Sailor of the Year after Vice Chief of Naval Operations makes announcement, April 20, 2017 (U.S. Navy/Taylor N. Stinson); Lithuanian girl holds rocket launcher at static display in Visaginas, as militaries from several countries taking part in Exercise Iron Sword 16, including the United States, interacted with and demonstrated their gear to locals and visitors, November 26, 2016 (U.S. Marine Corps/Kirstin Merrimarahajara); Soldiers celebrate third-period goal during 3rd annual Army vs. Air Force hockey game, which Army won in overtime, January 9, 2017 (U.S. Army/John Pennell) About the Cover In this Issue Airman secures outside of hardened facility after neutralizing opposing force during Battlefield Leaders Dialogue Assaulter Course, Integrated 2 From the Chairman Combat Essentials, on Ramstein Air Base, Germany, May 30, 2015 (U.S. Air Force/Ryan Crane) Forum 4 Executive Summary 6 An Interview with Kurt W. Tidd 11 U.S. Southern Command: Evolving to Meet 21st- Century Challenges By Kurt W. Tidd and Tyler W. Morton Features 20 Strategic Competition: 122 Joint Publication 3-0, Beyond Peace and War 86 Autonomous Weapons Joint Operations Systems Safety By Daniel Burkhart and Alison Woody By Rick Rowlett By Brian K. Hall 28 Black Is the New Red: 124 Joint Doctrine Update Containing Jihad 94 The Trouble with Mission Command: Flexive By Scott Englund Command and the Future Joint Force Quarterly is published by the National 35 Respecting Strategic Agency: of Command and Control Defense University Press for the Chairman of the On the Categorization By Andrew Hill and Heath Niemi Joint Chiefs of Staff. JFQ is the Chairman’s flagship joint military and security studies journal designed to of War in Strategy inform members of the U.S. Armed Forces, allies, and 101 Learning to Fish in Murky By Lukas Milevski other partners on joint and integrated operations; Waters: The Missing Link national security policy and strategy; efforts to combat terrorism; homeland security; and developments in in Capacity-Building training and joint professional military education to JPME Today By Stephen E. Webber and transform America’s military and security apparatus Donald E. Vandergriff to meet tomorrow’s challenges better while protecting 41 Professional Military Education freedom today. All published articles have been vetted and Broadening Assignments: through a peer-review process and cleared by the A Model for the Future Defense Office of Prepublication and Security Review. Recall NDU Press is the National Defense University’s By Douglas Orsi 109 Building a Stay-Behind cross-component, professional military and academic publishing house. 49 Civil-Military Relations in Resistance Organization: The The opinions, conclusions, and recommendations Transitions: Behavior of Case of Cold War Switzerland expressed or implied within are those of the Against the Soviet Union contributors and do not necessarily reflect the views Senior Military Officers of the Department of Defense or any other agency of By Charles D. Allen By Kevin D. Stringer the Federal Government. Copyright Notice 60 A Strategic Leader’s Guide This is the official U.S. Department of Defense edition Book Reviews of Joint Force Quarterly. Any copyrighted portions to Transforming Culture of this journal may not be reproduced or extracted in Large Organizations 115 Hubris without permission of the copyright proprietors. JFQ should be acknowledged whenever material is quoted Reviewed by Ryan A. Sanford By Mark Schmidt and Ryan Slaughter from or based on its content. Submissions and Communications 116 The Grand Strategy of JFQ welcomes submission of scholarly, independent Commentary Classical Sparta research from members of the Armed Forces, security policymakers and shapers, defense analysts, Reviewed by Williamson Murray 66 Where Rumsfeld Got It academic specialists, and civilians from the United Right: Making a Case for States and abroad. Submit articles for consideration 118 The Grand Strategy That In-Progress Reviews to ScholarOne, available at https://mc04. Won the Cold War manuscriptcentral.com/ndupress, or write to: By Anthony Dunkin Editor, Joint Force Quarterly Reviewed by John Culclasure NDU Press 73 Military Retirement Reform: 260 Fifth Avenue (Building 64, Room 2504) A Case Study in Successful Fort Lesley J. McNair Joint Doctrine Washington, DC 20319 Public Sector Change 120 Adaptive Doctrine: Infusing Telephone: (202) 685-4220/DSN 325 By Laura J. Junor, Samantha Email: [email protected] the Changing Character of JFQ online: www.dtic.mil/doctrine/jfq/jfq.htm Clark, and Mark Ramsay Warfare into Doctrine 3rd Quarter, July 2017 81 Trauma Care in Support of By Gregory E. Browder ISSN 1070-0692 Global Military Operations and Marcus J. Lewis By Kyle N. Remick and Eric A. Elster General Dunford and Senior Enlisted Advisor to the Chairman, Sergeant Major John W. Troxell, meet with crew of Boeing B-52H to observe Air Force Nuclear Triad operations and talk to Airmen, Minot Air Force Base, North Dakota, November 2, 2016, (DOD/Dominique A. Pineiro) Maintaining a Boxer’s Stance ny coach will tell you that the acts globally, the United States does not partners, deter adversaries, compete on first step in training a fighter is have the luxury of choosing between a a day-to-day basis, and, when necessary, A developing a “boxer’s stance,” force that can fight nonstate actors, such respond across the spectrum of conflict. the foundational posture from which as the Islamic State of Iraq and Syria The first element of an effective all offensive and defensive movements (ISIS) and al Qaeda, and one that can boxer’s stance requires us to develop and flow. A good boxer’s stance conserves deter and defeat adversaries possessing maintain a balanced inventory of joint energy while keeping the fighter bal- a full array of military capabilities. We capabilities and capacities. As a result of anced, protected, and ready to throw also cannot afford to choose between sustained high operational tempo and quick, powerful punches. Between meeting today’s operational requirements an unpredictable fiscal environment fights or between rounds, any assess- and making the investments necessary over the last several years, we now face ment of a fighter’s performance must for tomorrow. Because we do not know readiness shortfalls and a bow wave of begin with the stance. when, where, or under what conditions modernization requirements across the While the Joint Force remains the the next fight will occur, the U.S. military Services. This challenge is particularly most capable military in the world today, must maintain a boxer’s stance—with the acute within the nuclear enterprise, which adversary investments, a decade and a half strength, agility, and resilience required is why we are actively recapitalizing plat- of continuous combat operations, and to fight and win against any potential forms in each leg of the nuclear triad to years of budgetary instability have eroded adversary. Maintaining this stance requires ensure that our deterrent remains safe, our competitive advantage and reduced us to develop and advance the capabilities, secure, reliable, and effective. Continued our ability to project power where and posture, operating concepts, and human investments in space and cyberspace when needed. As a nation that thinks and capital necessary to assure our allies and capabilities allow us to deny adversary 2 Dialogue / From the Chairman JFQ 86, 3rd Quarter 2017 objectives, impose costs on those who conduct attacks, and ensure resiliency across all domains.