STRATEGIC STUDIES INSTITUTE The Strategic Studies Institute (SSI) is part of the U.S. Army War College and is the strategic level study agent for issues related to national security and military strategy with emphasis on geostrate- gic analysis. The mission of SSI is to use independent analysis to conduct strategic studies that develop policy recommendations on: • Strategy, planning and policy for joint and combined employment of military forces; • Regional strategic appraisals; • The nature of land warfare; • Matters affecting the Army’s future; • The concepts, philosophy, and theory of strategy; and • Other issues of importance to the leadership of the Army. Studies produced by civilian and military analysts concern topics having strategic implications for the Army, the Department of De- fense, and the larger national security community. In addition to its studies, SSI publishes special reports on topics of special or immediate interest. These include edited proceedings of conferences and topically-oriented roundtables, expanded trip re- ports, and quick reaction responses to senior Army leaders. The Institute provides a valuable analytical capability within the Army to address strategic and other issues in support of Army par- ticipation in national security policy formulation. RETHINKING LEADERSHIP AND “WHOLE OF GOVERNMENT” NATIONAL SECURITY REFORM: PROBLEMS, PROGRESS, AND PROSPECTS Joseph R. Cerami Jeffrey A. Engel Editors May 2010 Visit our website for other free publication downloads http://www.StrategicStudiesInstitute.army.mil/ To rate this publication click here. The views expressed in this report are those of the au- thors and do not necessarily reflect the official policy or position of the Department of the Army, the De- partment of Defense, or the U.S. Government. Authors of Strategic Studies Institute (SSI) publications enjoy full academic freedom, provided they do not disclose classified information, jeopardize operations security, or misrepresent official U.S. policy. Such academic freedom empowers them to offer new and sometimes controversial perspectives in the interest of furthering debate on key issues. ***** This publication is subject to Title 17, United States Code, Sections 101 and 105. It is in the public domain and may not be copyrighted. ***** Comments pertaining to this report are invited and should be forwarded to: Director, Strategic Studies Institute, U.S. Army War College, 122 Forbes Ave, Carlisle, PA 17013-5244. ***** All Strategic Studies Institute (SSI) publications may be downloaded free of charge from the SSI website. Hard copies of this report may also be obtained free of charge by placing an order on the SSI website. The SSI website address is: www. StrategicStudiesInstitute.army.mil. ***** The Strategic Studies Institute publishes a monthly e-mail newsletter to update the national security community on the re- search of our analysts, recent and forthcoming publications, and upcoming conferences sponsored by the Institute. Each newslet- ter also provides a strategic commentary by one of our research analysts. If you are interested in receiving this newsletter, please subscribe on our website at www.StrategicStudiesInstitute.army. mil/newsletter/. ISBN 1-58487-440-6 ii CONTENTS Foreword .........................................................................v 1. Will What We Think We Know About Leadership and “Whole of Government” Reform Kill the Prospects for Effective and Ethical Change? ……….....................................1 Joseph R. Cerami 2. Leadership, National Security, and Whole of Government Reforms: The Project on National Security Reform (PNSR) Perspective …………………...................................29 . James R Locher III 3. Leadership as Practical Ethics ……………...........49 . Joel H Rosenthal 4. Transforming Intelligence Analysis: “The Tail That Wags the Dog”…………...............73 Richard H. Immerman 5. Reforming the National Security Process in a Globalizing World…….................................111 James Goldgeier 6. A Fine Balance: The Evolution of the National Security Adviser ……………...............127 Andrew Preston 7. Leading the Next Phase of Homeland Security Intelligence: Providing Better Definitions, Roles, and Protections ....................149 Geoffrey S. French iii 8. Winning Hearts and Minds: From Slogan to Leadership Strategy …………….....................165 . Todd L Pittinsky 9. Change Is Hard . But Even Small Steps Matter ……………………………….....................187 Jeffrey A. Engel About the Contributors...............................................209 The George Bush School of Government and Public Service, Texas A&M University……….217 The Scowcroft Institute of International Affairs ………............................……..……………… 218 About the Strategic Studies Institute.………………219 iv FOREWORD On June 24, 2009, The Bush School of Government and Public Service and The Scowcroft Institute of International Affairs at Texas A&M University, and the U. S. Army War College, Strategic Studies Insti- tute (SSI), conducted a conference on “Leadership and Government Reform” in Washington, DC. Two panels discussed Leader Development in Schools of Public Affairs and Leadership, National Security, and “Whole of Government” Reforms. This conference marked the fourth in a series that the Bush School has conducted with the SSI. The first, “The Future of Transatlantic Security Relations,” was held in 2006; the second, “The Interagency and Coun- terinsurgency Warfare,” in 2007. In March 2008, the Bush School conducted a colloquium in College Sta- tion, Texas, focused on “Reform and the Next Presi- dent’s Agenda,” which looked forward to the Novem- ber 2008 election. That conference was also sponsored by the nonpartisan Project on National Security Re- form, which includes retired Lieutenant General Brent Scowcroft as a member of its Guiding Coalition that originally included several key members of the Obama administration. The June 24 conference theme continued the dis- cussion about the need for changes in leader develop- ment and whole of government reform—even more reform than the post-World War II changes accom- plished by the 1947 National Security Act and the 1986 Goldwater-Nichols legislation. The chapters here examine whether and to what extent it is possible to boldly and fundamentally improve the alignment, coordination, integration, and interoperability among the government’s national security agencies. v The panelists and authors have reflected on the na- ture of external, internal, and transnational threats to U.S. security, and the needs for changes in developing people, organizations, and institutions to more effec- tively, efficiently, and ethically improve the U.S. Gov- ernment’s capacity to address the need for change. In essence, the authors in this book share the belief of many in the international and public affairs communi- ty, such as Brent Scowcroft and Zbigniew Brzezinski, that the world is changing in fundamental ways, and our traditional models for understanding America’s role do not appear to be working very well.1 A new era of reform is needed for this new age, in response to which the panelists, in their detailed remarks2 and subsequent papers, offer suggestions to reform the United States' national security system to meet 21st century threats, while simultaneously developing the leaders who can implement a serious and broad-scale reform agenda. The SSI joins the coeditors of this volume in thank- ing the Bush School staff members for their superb ef- forts in planning and executing the conference, and in preparing this volume. Beth Roberts, Mary Hein, Mat- thew Upton, Joe Dillard, and Laura Templeton pro- vided the excellent support needed for the conference planning and execution. They were joined by Lindsey Pavelka, who also contributed to the initial SSI confer- ence Colloquium Brief. Matt Henderson video-taped the DC conference and edited the videos which have been posted on the Bush School and the SSI website. Ethan Bennett provided research assistance and his considerable writing skills in preparing the chapters presented in this volume. We thank them and the Bush School’s former Dean, Lieutenant General Rich- ard A. Chilcoat (USA, Ret.), Interim Dean, Dr. A. Ben- vi ton Cocanaugher, Executive Associate Dean, Dr. Sam Kirkpatrick, and Master’s Degree Program Directors, Dr. Charles Hermann and Dr. Jeryl L. Mumpower, for their leadership in promoting a significant and con- tinuing partnership with the SSI. DOUGLAS C. LOVELACE, JR. Director Strategic Studies Institute ENDNOTES - FOREWORD 1. Zbigniew Brzezinski and Brent Scowcroft, America and the World: Conversations on the Future of American Foreign Policy, New York: Basic Books, 2008, p. viii. 2. For Leadership and Government Reform conference pan- elists’ videos on June 24, 2009, see bush.tamu.edu/DC2009/. vii CHAPTER 1 WILL WHAT WE THINK WE KNOW ABOUT LEADERSHIP AND “WHOLE OF GOVERNMENT” REFORM KILL THE PROSPECTS FOR EFFECTIVE AND ETHICAL CHANGE?1 Joseph R. Cerami2 The end of man is knowledge, but there is one thing he can’t know. He can’t know whether knowledge will save him or kill him. He will be killed, all right, but he can’t know whether he is killed because of the knowledge which he has got or because of the knowledge which he hasn’t got and which if he had it, would save him. for the end of man is to know. Robert Penn Warren All the King’s Men3 On June 24, 2009, the Bush School of Government and Public Service and Scowcroft Institute of Interna- tional Affairs at Texas A&M University, and