U.S. Naval War College U.S. Naval War College Digital Commons Newport Papers Special Collections 2020 Ten Years In: Implementing Strategic Approaches to Cyberspace Jacquelyn G. Schneider Emily O. Goldman Michael Warner Paul M. Nakasone U.S. Army Chris C. Demchak See next page for additional authors Follow this and additional works at: https://digital-commons.usnwc.edu/usnwc-newport-papers Recommended Citation Schneider, Jacquelyn G.; Goldman, Emily O.; Warner, Michael, "Ten Years In: Implementing Strategic Approaches to Cyberspace" (2020). Newport Papers. 45. This Book is brought to you for free and open access by the Special Collections at U.S. Naval War College Digital Commons. It has been accepted for inclusion in Newport Papers by an authorized administrator of U.S. Naval War College Digital Commons. For more information, please contact [email protected]. Authors Jacquelyn G. Schneider, Emily O. Goldman, Michael Warner, Paul M. Nakasone, Chris C. Demchak, Nancy A. Norton, Joshua Rovner, Timothy D. Haugh, William R. Garvey, Erika E. Volvino, Ryan R. Lemmerman, Erica D. Borghard, Shawn W. Lonergan, Timothy J. White, Paul Stanton, Michael Tilton, Peter Dombrowski, and Nina Kollars This book is available at U.S. Naval War College Digital Commons: https://digital-commons.usnwc.edu/usnwc- newport-papers/45 NAVAL WAR COLLEGE NEWPORT PAPERS 45 NAVAL WAR COLLEGE WAR NAVAL Ten Years In Implementing Strategic Approaches to Cyberspace NEWPORT PAPERS NEWPORT 45 Jacquelyn G. Schneider, Emily O. Goldman, and Michael Warner, Editors Ten Years In Newport Paper No. 45 Ten Years In Implementing Strategic Approaches to Cyberspace The Newport Papers are extended research projects that the Director, the Dean of Na- val Warfare Studies, and the President of the Naval War College consider of particular interest to policy makers, scholars, and analysts. The views expressed in the Newport Papers are those of the authors and do not neces- sarily reflect the opinions of the U.S. Naval War College or the Department of the Navy. Jacquelyn G. Schneider, Emily O. Goldman, Correspondence concerning the Newport Papers may be addressed to the Director of and Michael Warner, Editors the Naval War College Press. To request additional copies, back copies, or subscrip- tions to the series, please either write the President (Code 32S), U.S. Naval War Col- lege, 686 Cushing Road, Newport, RI 02841, or contact the Press staff at the telephone, fax, or e-mail addresses given. U.S. Naval War College 686 Cushing Road Newport, Rhode Island 02841 https://usnwc.edu NAVAL WAR COLLEGE PRESS Ten Years In Implementing Strategic Approaches to Cyberspace Jacquelyn G. Schneider, Emily O. Goldman, and Michael Warner, Editors NAVAL WAR COLLEGE PRESS Naval War College Press Newport 02841 Published 2020 Printed in the United States of America ISSN 1544-6824 ISBN 978-1-935352-73-0 (paperback) The logo of the U.S. Naval War College authenticates Newport Paper No. 45, Ten Years In: Implementing Strategic Approaches to Cyberspace, edited by Jacque- lyn G. Schneider, Emily O. Goldman, and Michael Warner, ISBN 978-1-935352-73-0 (paperback), as the official U.S. Naval War College edition of this publication. Use of the U.S. Naval War College logo and ISBN 978-1-935352-73-0 is strictly prohibited without the express written permission of the Editor (or Editor’s designee), Naval War College Press. Reproduction and distribution are subject to the Copyright Act of 1976 and applicable treaties of the United States. Copies of all or any portion of this work must be clearly labeled as such, and are required to credit the author, series, full title, and the U.S. Na- val War College. Contact the Naval War College Press regarding commercial use and copyrights. Naval War College Press Code 32 686 Cushing Road Newport, Rhode Island 02841 401.841.2236 telephone 401.841.1071 fax DSN exchange: 841 [email protected] https://usnwc.edu/nwcpress Contents Foreword, by Paul M. Nakasone vii Preface, by Jacquelyn G. Schneider, Emily O. Goldman, and Michael Warner ix Introduction: A Cyber Force for Persistent Operations, by Paul M. Nakasone 1 List of Acronyms and Abbreviations 9 CHAPTER ONE A Brief History of Cyber Conflict 13 by Michael Warner CHAPTER TWO The Cyber Paradigm Shift 31 by Emily O. Goldman CHAPTER THREE Cyber Competition to Cybered Conflict 47 by Chris C. Demchak CHAPTER FOUR Advances in Defense 67 by Vice Adm. Nancy A. Norton, USN, et al. CHAPTER FIVE Cyberspace and Warfighting 81 by Joshua Rovner CHAPTER SIX Agile Collaboration in Defense of the Nation 97 by Lt. Gen. Timothy D. Haugh, USAF; Maj. William R. Garvey, USAF; Capt. Erika E. Volino, USAF; and MSgt. Ryan R. Lemmerman, USAF CHAPTER SEVEN Public-Private Partnerships in Cyberspace in an Era of Great-Power Competition 109 by Erica D. Borghard and Shawn W. Lonergan vi the newport papers CHAPTER EIGHT Joint Operations in Cyberspace: From Operational Unity to Shared Strategic Culture 129 by Vice Adm. Timothy J. White, USN (Ret.) CHAPTER NINE Cyber Strategy, Talent, and Great-Power Competition 141 by Jacquelyn G. Schneider CHAPTER TEN Defining and Measuring Cyber Readiness 159 by Brig. Gen. Paul Stanton, USA; and Lt. Col. Michael Tilton, USA CHAPTER ELEVEN The Role of Technology and Innovation in Implementing U.S. Cyber Strategy 167 by Peter Dombrowski and Nina Kollars About the Contributors 183 The Newport Papers 191 Foreword This book represents a look beyond theories and analogies to examine the challenges of strategy implementation. In the essays that follow, practitioners who are building cyber- space forces at-scale join scholars who study power and force in this new domain to col- lectively offer a unique perspective on the evolution and future of cyber strategy and operations. The co-editors of Ten Years In compiled it in the tenth year of operations for U.S. Cyber Command. During that decade, the Command worked with the Services and the Coast Guard to build seven component commands, attained unified combatant com- mand status, and matured the Cyber Mission Force’s 133 teams. For the Department of Defense cyber enterprise, it has been a decade of operational learning and doctrinal development, culminating in the DoD Cyber Strategy, the U.S. Cyber Command Vision to Achieve and Maintain Cyberspace Superiority, and the revision of Joint Publication 3-12, Cyberspace Operations. Yet threats to our nation evolved and diversified over this decade as great-power com- petition spread to cyberspace and intruded on diplomatic relations below the threshold of armed conflict. Such threats now include state-sponsored theft of U.S. intellectual property and personally identifiable information, intrusions in critical infrastructure, and campaigns to influence and intimidate democratic institutions around the world. Cyberspace capabilities are now being integrated with all instruments of national power, to include conventional military operations and information warfare. The chapters to follow cover opportunities and challenges associated with implementing the principles articulated in national and military strategic guidance. These analy- ses offer historical perspective on cyber conflict, chart organizational developments, and reflect on challenges such as public-private relationships, manpower and talent, readiness and capabilities, and evolving authorities. In addition, this volume looks to the future with several reflections by promising cyberspace scholars and leaders in the Department of Defense and academia. I think readers will agree that this volume points to a maturation of cyberspace prac- tice in the Department of Defense. Ten years ago U.S. Cyber Command began the transition from an idea to an institution to the persistent implementation of approach- es to safeguard the Department of Defense’s Information Networks, to support Joint Force commanders, and to defend the nation from cyberspace threats of strategic viii the newport papers consequence. This volume expands on previous strategic thought to suggest ways in which an emerging cyberspace strategy can be executed to its full potential. The partnership between the Naval War College’s Cyber and Innovation Policy Institute and U.S. Cyber Command represented in this volume illustrates the role that profes- sional military education plays in bridging gaps between practice and scholarship. Ten Years In should demonstrate how the Joint Force can profit from the expertise sustained by its professional military education enterprise as well as from the timely knowledge of those confronting the immediate challenges facing the Department of Defense. General paul m. nakasone U.S. Army Commander, U.S. Cyber Command / Director, National Security Agency / Chief, Central Security Service Preface Three years have passed since the U.S. National Security Strategy called the contest for power a central continuity in history and warned that “the revisionist powers of China and Russia” are “competing against the United States and our allies and partners.” In implementing this new national strategy, the National Defense Strategy then pivoted its focus from terrorism to long-term, strategic competition and turned to face a new geo- strategic and economic competitor in China. Cyberspace is a key arena in strategic competition, and cybersecurity represents a sig- nificant challenge that the United States must address if the National Security Strategy is to succeed. China engages in intellectual property theft at scale and uses predatory practices to overcome Western advantages in technology. Russia employs disruptive campaigns to undermine democratic institutions, sow discord in the West, and erode alliance cohesion. Both governments engage in strategic cyber campaigns to defend their regimes and to decrease American power and influence. Their approaches differ, but both view cyberspace as a venue in great-power competition through which they can impair the sources of American power without engaging in armed conflict. What once required a physical invasion to achieve is now being accomplished through continuous campaigns waged in and through cyberspace. The Department of Defense (DOD) has recognized these trends and shifted from a “be prepared” posture to one of active engagement.