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THIS PAGE Same as 100 unclassified unclassified unclassified Report (SAR) Standard Form 298 (Rev. 8-98) Prescribed by ANSI Std Z39-18 Inside Issue 40, 1st Quarter 2006   Departments  1 A Word from the Chairman   6 From the Editor   7 New in JFQ JFQ   92 Book Reviews   Editor-in-Chief Stephen J. Flanagan, PhD Director, Institute for National Strategic Studies   JFQ Forum  Editor Col Merrick E. Krause, USAF Director, NDU Press   8 Homeland Defense and Security Managing Editor, NDU Press COL Debra Taylor, USA Deputy Director, NDU Press  10 An Interview with Assistant Secretary of Defense for Homeland Defense Paul McHale Managing Editor, JFQ Col David H. Gurney, USMC (Ret.) Acquisition and Review Editor Jeffrey D. Smotherman, PhD  16 Terrorism and Domestic Response: Can DOD Help Get It Right? by Donald F. Thompson Supervisory Editor George C. Maerz Production Supervisor Martin J. Peters, Jr.  23 North American Defense and Security after 9/11 by Joseph R. Inge and Eric A. Findley Senior Copyeditor Calvin B. Kelley Book Review Editor Lisa M. Yambrick  29 NATO Training Mission–Iraq: Looking to the Future Information Manager TSgt Ayanna F. Woods, USAF Intern Milady Ortiz by Rick Lynch and Phillip D. Janzen   Design U.S. Government Printing Office Creative Services   Special Feature  Joint Force Quarterly is published by the National Defense University Press for the Chairman of the Joint Chiefs of Staff.  36 U.S. Special Operations Command JFQ is the Chairman’s flagship joint military and security studies journal designed to inform members of the U.S. Armed Forces, allies, and other partners on joint and integrated  38 U.S. Special Operations Command: Meeting the Challenges of the 21st Century operations; national security policy and strategy; efforts to combat terrorism; homeland security; and developments in by Bryan D. “Doug” Brown training and joint professional military education to transform America’s military and security apparatus to better meet  44  U.S. Special Operations Command and the War on Terror tomorrow’s challenges while protecting freedom today. NDU Press produces JFQ four times a year. The by Dell L. Dailey and Jeffrey G. Webb goal of NDU Press is to provide defense and interagency decisionmakers, allies, and the attentive public with attractive,  49 U.S. Special Operations Command: balanNceDd,U a nPdre tshso irso tuhgeh Nlya trieosneaalr cDheefde npsreo fUenssiivoenrasilt py’us bclriocsast-ions. Effectively Engaged Today, Framing the Future Fight component, professional, military, and academic publishing house. It publishes books, policy briefs, occasional papers, by Paulette M. Risher monographs, and special reports on national security strategy, defense policy, national military strategy, regional security  54 Technology: Force Multiplier for Special Operations by Dale G. Uhler aInffsatiirtus,t ea nfodr g Nloabtiaol nstarla Stetrgaitce pgirco bStleumdise.s N, aD pUo lPicrye srse sise apracrht aonf dth e   strategic gaming organization.   Commentary  This is the authoritative, official U.S. Department of Defense edition of JFQ. Any copyrighted portions of  60 Chasing U-Boats and Hunting Insurgents: Lessons from an Underhand Way of War this journal may not be reproduced or extracted without permission of the copyright proprietors. Joint Force Quarterly by Jan S. Breemer should be acknowledged whenever material is quoted from or   based on its content.   Features  CONTRIBUTIONS Joint Force Quarterly welcomes submission of scholarly,  67 The Air Force’s Vector by R. Mike Worden and Michael Spirtas isnecdueprietyn dpeonlitc ryemseaakrecrhs farnodm s mhaepmerbse, rdse ofef nthsee aAnramlyesdts ,F aocracdese,m ic specialists, and civilians from the United States and abroad.  73 Clausewitz’s Theory of War and Information Operations by William M. Darley Submit articles for consideration to the address below or by   email to [email protected] “Attention A&R Editor” in the subject line. For further information see the guidelines on the NDU   Interagency Dialogue  Press Web site at ndupress.ndu.edu. COMMUNICATIONS  80 Interagency Lessons Learned in Afghanistan by Tucker B. Mansager ndupPrelesass.ne dvuis.ietd NuD foUr mProerses aonnd u Jpocinotm Fionrgc eis Qsuueasr, taenrl ye loenctlrinone iact   archive of JFQ articles, and access to many other useful NDU Press publications. Constructive comments and contributions   Recall  are important to us. Please direct editorial communications to the electronic feedback form on the NDU Press Web site or write to:  85 The Short but Brilliant Life of the British Pacific Fleet by Nicholas E. Sarantakes Editor, Joint Force Quarterly National Defense University Press The opinions, conclusions, and recommendations expressed or implied within are those of the contributors and do 300 Fifth Avenue not necessarily reflect the views of the Department of Defense or any other agency of the Federal Government. Fort Lesley J. McNair Washington, DC 20319-5066 About the cover Telephone: (202) 685-4220/DSN 325 FAX: (202) 685-4219/DSN 325 The front cover shows soldiers with Joint Task Force Katrina patrolling the French Quarter (U.S. Army/Mi- Email: [email protected] chael J. Carden); inside front cover depicts Marines patrolling Fallujah (U.S. Marine Corps/Thomas Rodman). JFQ online: ndupress.ndu.edu Inside back cover shows [clockwise from the top] Quick Reaction Force exercise (U.S. Air Force/Derrick C. Goode); fighter preparing for Operation Noble Eagle (U.S. Air Force/Keri S. Whitehead); Coast Guard security 1st Quarter, January 2006 team, Exercise Alaska Shield/Northern Edge 05 (U.S. Air Force/Mike Buytas); searching New Orleans for survi- ISSN 1070-0692 vors of Hurricane Katrina, Joint Task Force Katrina (U.S. Marine Corps/Zachary R. Frank) ; and security force training aboard USS Harry S. Truman (U.S. Navy/Kat Smith). The back cover shows [from the top] directing ndupress.ndu.edu an F/A–18 aboard USS Kitty Hawk (U.S. Navy/Benjamin Dennis); sighting howitzer in Fallujah (55th Signal Company/Johancharles Van Boers); securing Daegu Air Base, Korea, Exercise Foal Eagle (U.S. Navy/John J. Pistone); and HH–60 helicopters refueling, Exercise Arctic SAREX 2005 (U.S. Air Force/Joshua Strang). A ProfessionAl MilitAry Download cover as computer wallpaper at ndupress.ndu.edu. And security JounrdunpArelss.ndu.edu Delightful are the prospects that will open the view of United America—her sons well prepared to defend their own happiness, and ready to relieve the misery of others. —John Dickinson, 1788 Their blood and their toil, their endurance and patriotism, have made us, and all who come after us forever their debtors. —President Theodore Roosevelt, 1903 If we are strong, our character will speak for itself. If we are weak, words will be of no help. —President John F. Kennedy, 1963 In a free society it is impossible to protect against every possible threat. And so the only way to defend our citizens where we live is to go after the terrorists where they live. —President George W. Bush, 2005 ndupress.ndu.edu i A Word from General Pace speaking the Chairman at his swearing in as the 16th Chairman of the Joint Chiefs of Staff The 16th Chairman’s Guidance to the Joint Staff A s I begin my tenure as Chairman, I would like to share with you the guidance I have provided to the Joint Staff. This guidance provides the Joint Staff with strategic direction while ensur- ing unity of effort as it supports the execu- tion of my duties as the Principal Military Advisor to the President of the United States, the Secretary of Defense, and tahpep lNieast itoon tahle S Jeociunrti tSyt aCffo,u In hcoilp. eW mhyi lgeu iitd - Mae Burke) ance will provide you with a better under- mie standing of how I will approach my duties Ma D ( as Chairman. You can find the guidance DO posted on the Web at <www.jcs.mil>. Though our focus is winning the War to paper and use these pages to share infor- want the Joint Staff to run faster and jump on Terrorism, the Nation’s Armed Forces mation, discuss new developments, and foster higher. To the contrary, I want you to stop must be prepared to conduct the full range of intellectual debate. One of the strengths of our doing things that do not contribute to shaping military operations. With that end in mind Armed Forces is an incredible array of intel- the future and focus your extraordinary talents I have laid out my four mutually supporting lectual power and it is through your views, and energies on defeating this enemy. priorities: win the war on terrorism, accelerate ideas, and challenges to conventional wisdom As the 16th Chairman of the Joint transformation, strengthen joint warfighting, that our Joint Force will achieve its greatest Chiefs of Staff it is an honor to lead this and improve the quality of life of our Service potential. I look forward to hearing from you. superb team. As Vice Chairman, I had the members and their families. privilege of working with you for 4 years We are serving in difficult times against Introduction and I know your abilities and dedication a ruthless enemy. I plan to use future issues We are at war against an enemy whose are without peer. Your professional excel- of JFQ to expand on topics that will challenge publicly reiterated intent is to destroy our way lence will ensure we meet the many chal- the finest Armed Forces in the world to be of life. In response to this very real and present lenges that lie ahead. even better—more agile, more adaptive, more danger we must execute our responsibilities Every individual on this staff, civilian lethal. Likewise, I urge each of you to put pen with a sustained sense of urgency. I do not and military, is critical to our success and is valued. You make a difference every day and General Peter Pace, USMC, was sworn in as the 16th Chairman of the Joint Chiefs of Staff on September 30, you should feel a justifiable sense of pride in 2005. He also served as the Vice Chairman of the Joint Chiefs of Staff from October 1, 2001, through August your contribution to the defense of America. 12, 2005, the first Marine to hold both positions. Thank you for your service! ndupress.ndu.edu issue 40, 1st quarter 2006 / JFQ     This Global War on Terrorism—a war As the Principal Military Advisor, the those nations make and the paths they choose of long duration—differs in many ways from Chairman of the Joint Chiefs of Staff advises will significantly shape the world of our that for which most of us have spent our time on both policy formulation and policy children and the challenges that will confront in service preparing. Our focus in this fight is implementation. The Chairman’s responsi- Americans in uniform in the coming decades. not on kinetic effect against a massed enemy, bilities include strategy development, defini- While the military is but one element of our but increasingly on the search for individuals tion of roles and missions, contingency and Nation’s power, it can play an important role and small cells of terrorists. Our opponents strategic planning, programming and bud- in this process. Our experience in the military are ruthless and elusive but they are also vul- geting, and sustaining readiness, along with aspects of such decisions has relevance to nerable. Resourcefulness and organizational other functions as delineated in U.S. Code. others and should be shared. agility will enable us to prevail in this just The Chairman, and by extension the cause—and prevail we will. Joint Staff, is not in the operational chain of Priorities Our proper emphasis is on the War command and has no operational authority. My priorities are mutually supportive. on Terrorism but we must remain prepared Our task is to articulate the orders of our Success in one will support success in others, to conduct the full range of military opera- President and Secretary of Defense to those while delay in one will impede success in tions. We will remain a force capable of who do have that operational authority and others. We must aggressively identify those defeating any opponent. Our challenge is to support the efforts of those empowered factors impeding our success, develop plans to apply our experience and expertise in an with it. We must be of assistance to the to overcome them, and establish metrics with adaptive and creative manner, encouraging combatant commanders as they carry out which to assess our progress. initiative, innovation, and efficiency in the the missions they have been assigned. execution of our responsibilities. The key to the staff’s effectiveness, n Win the War on Terrorism This Guidance provides the Joint Staff therefore, is to understand its role, remain Our enemies are violent extremists who with strategic direction to ensure unity of within its bounds, and function in a col- would deny us, and all mankind, the freedom effort as we go about our duties in the service laborative manner in active partnership to choose our own destiny. Finding this of the Nation. with the Office of the Secretary of Defense distributed, loosely networked enemy is the greatest challenge we face. We must find and defeat them in an environment where infor- mation, perception, and how and what we communicate are every bit as critical as the application of traditional kinetic effects. This is a war of long duration and we must plan and adapt accordingly. We are now 4 years into this campaign and should ask ourselves if the changes we have made to Myles Cullen) daefdaftdoeir ttai orreen faalecl hccthieeadvn iingneg st t hahere el n enveeecele dosesfa drr?ey tI use rftfnhe?ec tHlse.ov Wwel hdoaof t D. Squadron ( we meWaseu craen o tuark ep rtohge rfeigssh?t to the enemy on Talking with commander mera the battlefield and we will prevail, but that is Ca not enough. We will not defeat terrorists solely of FoLrawnagrmd aOnp, eArfagthinagn iBsatasne Combat through the use of force. We must assist others st1 to create good governance and the rule of law—shaping an environment that precludes Intent (OSD), the combatant commanders, the the flourishing of terrorism, much as a healthy The Joint Staff will be an agile, empow- Services, the combat support agencies, the body rejects the onslaught of disease. ered, innovative, and results-oriented organi- interagency, and Congress. We should help We must harness the elements of zation, which supports the Chairman in the others succeed. national power to win the War on Terrorism. execution of his duties as the Principal Mili- It is not enough for us to be successful My military advice to our Nation’s leaders will tary Advisor to the President of the United in responding to today’s challenges. We must favor recommendations that integrate and States, the Secretary of Defense, and the help shape the future by identifying those coordinate our efforts with the work of others National Security Council. The Chairman’s actions which we can take now at a fraction fighting this war. Through closer coordina- role is to be a clear and independent voice, of the cost of what it would take later to tion within the Department of Defense and providing the best military advice in an respond to a preventable crisis. interagency, we maximize the impact of our apolitical, nonpartisan manner. As a member All nations face significant national military power and build trust, synergy, and of the Joint Staff, you will help to shape that security challenges. Many, like the United momentum. We will focus on a collaborative advice. It is a sacred charge entrusted to us by States, are acting in what they believe are the approach to winning the War on Terror- the citizens we defend. best interests of their citizens. The decisions ism, building and enhancing interagency 2 JFQ / issue 40, 1st quarter 2006 ndupress.ndu.edu General Pace is the Principal Military Advisor to the President of the United States and the Secretary of Defense wald) Guen Kevin Squadron ( munications m Co th99 relationships. Look for ways that the military the War on Terrorism and will significantly uniqueness of Service culture from which joint instrument—and the way it is applied—can accelerate and be accelerated by transforma- competence flows. complement and strengthen the actions of tion. This will require collaborative and other elements of national power. innovative solutions to difficult cultural and n Improve the Quality of Life of Our It is our collaborative efforts with our resource challenges. We must transition from Service Members and Our Families OSD counterparts, the interagency, and our an interoperable to an interdependent force Bringing our people home alive and Coalition partners that will ultimately deter- where different capability sets can be rapidly intact is Quality of Life Job #1. The best lead- mine our success in this war. integrated to achieve desired effects. Inno- ership, the most innovative tactics, the best vative operational concepts, training, and equipment, and the best force protection are n Accelerate Transformation experimentation along with a focus on team- indispensable to this goal. Transformation is a continual process, work are key to success. Driving the develop- We must show respect for the men not an end-state. We must transform if we ment of warfighting concepts, architectures, and women who serve this country in the are to meet future challenges. Transformation and capabilities will be a primary means to way we man, train, equip, mobilize, deploy, is concepts and practices, technologies and achieve this priority. employ, sustain, redeploy, refurbish, and capabilities, roles and missions, organizational Equally critical will be the actual demobilize the force. This applies to the structures, internal processes, doctrine and implementation of the many lessons we have total force—Active, Guard and Reserve, education, personnel policies, and much more. gained in the course of this ongoing fight. military and civilian. The number and It applies to all—Active, Guard, and Reserve; Lessons learned must be tied to executable diversity of the organizations involved officer and enlisted; and military and civilian. actions, for without implementation, lessons dictate that we take a systemic and holistic It is as much a mindset and a culture as it are never truly learned. approach. We must be mindful of the effects is a technology or a platform and at its heart is We have also gained a wealth of opera- of making changes to the quality of life of a willingness on the part of the individual and tional experience, knowledge, jointness, and one portion of the force on the others and the organization to embrace innovation and savvy in this war. Those who have combat of the second and third order effects of ini- accept analyzed risk. We must influence both experience must be recognized as a significant tiatives in this area. its direction and rate of change. If we do not resource and should be assigned where we can Respect begins at home. Leaders on change a single tool at our disposal, but simply best employ their knowledge and experience. the Joint Staff must ensure that as we focus change how we employ those tools, we will There need be no conflict between our energies to attain our goals we do so in make significant progress in transformation. Service experience and joint warfighting. a manner that provides for a surge capacity We will focus not on defining transfor- To the contrary, I want you to bring your among our subordinates and their families. mation, but rather on promoting transforma- Service perspective to the decision process. Leave, liberty, and good health are force tion across a broad spectrum of endeavors. The strength of this staff, like the strength multipliers. Our service to the Nation is of the Nation, lies in the articulation of a marathon, not a sprint, and we cannot n Strengthen Joint Warfighting multiple views. This leads to “best of breed” succeed in our duties if we do not pace One of our central tasks as a staff is alternatives. Individual Service perspectives ourselves accordingly. to strengthen joint warfighting. The goal brought together jointly foster better solutions, We have been entrusted with a force of warfighting must be to produce a force which we then execute in a joint framework. built on the ethos of a warrior. The quality of capable of swiftly and decisively defeating We must strengthen the capabilities of the life initiatives we recommend must preserve any enemy. It is a prerequisite to winning force without sacrificing the expertise and that ethos while ensuring the Service member ndupress.ndu.edu issue 40, 1st quarter 2006 / JFQ     and his or her family receive the support and clearly defined, resulting in duplication, ambi- as I do myself, to ask questions. If something peace of mind they so richly deserve. guity, or lack of focus. does not make sense, indicate that up the We must evaluate the processes the chain and ask why. I also count on you to Enablers Joint Staff uses to execute its daily functions, identify those issues which merit my atten- The following are key enablers that to include our designated response times and tion and those that can best be handled at are critical to accomplishing our priorities. our ability to provide timely recommenda- a lower level. Recognize decisions that are Achieving them will require a commitment tions, sound advice, and useful feedback. This yours to make—and make them. Recognize to innovative and efficient solutions. staff is a collection of the best our Nation’s those that are your senior’s, and move them military has to offer, and we must harness forward expeditiously. ▼ Organizational Agility this intellect and drive to identify “best of Two cultural factors work directly We must become a more agile staff, breed” processes to support the mission. against an increase in our speed of action capable of reacting to change and execut- Experience, born of longevity in key posi- and decision: avoidance of risk, and a reli- ing our responsibilities more efficiently tions, will positively impact our efforts to ance on consensus as the primary vehicle and effectively. To do so we must focus our increase staff efficiency. for decisionmaking. We must overcome energies, our organizational structure, and We value and respect every member these to avoid stagnation. our resources on those key areas within our of the team, and we demonstrate that by not Risk is an inherent element of our busi- purview having the greatest impact on our wasting their time. This will require a deliber- ness. We must identify it up front and never priorities. We should conduct a fundamental ate and candid look at our workload—what are assume it away, but we cannot allow it to assessment of our organizational structure. we doing that we shouldn’t be? Are we effects- stop us from moving forward. Our emphasis We must identify those changes in authority focused to facilitate best results? We must should be on recommending solutions that that will facilitate more effective, efficient discontinue unproductive work and products offer flexibility as a hedge against uncertainty. action. We must also help close the seams that are seldom used by others. This will free We must accept that some issues cannot and gaps across the staff, the combatant com- resources for investment in those things we be solved at a lower level. Blockage may occur mands, the department, and our interagency should be doing but which we are not. among action officers, division chiefs, J-direc- partners—areas where responsibilities and Devote time to think, read, and write. tors, or higher. Rather than waste the time and authorities are not Intellectual breadth and perspective lead to energy of our people, identify such contentious solutions. We cannot gain their benefit if we points early. If we cannot reach agreement on are unable to periodically detach ourselves an issue within a reasonable amount of time, from the day-to-day tasks that are a neces- then we must be comfort- sary part of our duties. Each of us must able indicating so to regularly carve out time to look beyond our seniors and the present. We must also address the quality of our writing. Effective communication is a core element of organizational agility, and we must discipline ourselves to describe issues and recommend solutions with clarity and precision. Time and energy devoted to clear, precise communications serve our staff, our seniors, and our subordi- nates well. Write simply. ▼ Speed of Action and Decision Speed is critical to our future success. Improved speed of action and decision is one of the more important services we can provide our Nation’s leaders and those we support in executing the operational missions of the department. Improved speed of decision is not the same thing as making hasty deci- sions. Quality assessment is a critical element of an efficient decision cycle. We must discriminate between speed and haste. Visiting troops indiviUdupawl aermd pleoawdeerrmsheipn ta anrde force Squadron  JFQ / issue 40, 1st quarteinr 2A0fg06h anistan multipliers. I count on each of you, st1 Combat Camera (D. Myles Cullen) move the issue forward. This is as true for the Speaking at action officer as it is for me. The key is to make National Defense University sure that all are aware of the disagreement and are prepared to address the issue as it moves forward. We must give primacy to the objective and not the process. Consensus can be a worthy goal but not if the ultimate outcome is a recommendation that is so diluted it fails to satisfy the require- ment or issue at hand. Conversely, we must identify a mecha- nism to move lower level consensus forward more quickly for final approval. We must find the appropriate level at which all aspects of an issue have been properly addressed and empower that level to more quickly formalize U a decision. ND In addition, we must link senior deci- sionmakers in our organization with the We must create or adopt those tools with ensure we develop our subordinates and action officers who have the greatest knowl- the greatest applicability. to support those training and education edge of an issue. When the detailed answers opportunities available to them. to questions are readily available to senior ▼ Outreach Our civilian employees are a special leaders, we can generate good decisions We can both learn from and help others resource. Their long-term continuity and more rapidly. through a proactive outreach program to expertise in critical areas is a force multiplier— Actions and decisions are also enabled nontraditional partners. Academia, industry, one that we must hone to its full potential. It by precise data—data truly relevant to the think tanks, and a host of other organizations is the duty of every supervisor to understand issue at hand. Our processes and data col- possess a wide range of expertise and insights the workings of the civilian personnel system lection must produce predictive analysis to invaluable to finding solutions to our most and to ensure that our civilian work force does enable shaping action. pressing problems. as well. We must ensure our civilian service Our Coalition partners have significant members are positioned to succeed. ▼ Collaboration insights to share with us as well. Our friends The best investment we can make is Collaboration is a powerful tool in at home and abroad are our natural allies in in our professional development. Successful achieving optimal solutions and overcoming this war, and we should seek to partner with organizations are learning organizations. disagreement. It enables us to function as them at every opportunity. part of a larger team, within our own staff, Outreach also extends to our duty to Conclusion the Department of Defense, the interagency, assist others in the execution of their respon- We have much to do. We are at a criti- and ultimately with our Coalition partners. sibilities and to ensure that the American cal time in the history of this great country The power of a team is vastly superior to that public has the opportunity to interact with and find ourselves challenged in ways we did of an individual—whether that team be com- their military. We should regularly interact not expect. We face a ruthless enemy intent posed of people or of nations. with our fellow citizens, through speaking on destroying our way of life. Generations Our collaborative effort with OSD is opportunities, participation in civic events, of Americans have sacrificed and died that critical to enhancing effectiveness in the interaction with elected representatives and we might inherit the freedoms we all enjoy interagency and can enable the interagency to their staffs, and through the media. Ameri- today. It now falls to us to protect those function more like an integrated task force. cans need to see their military and to have the freedoms for our children and grandchildren. We must constantly ask ourselves who opportunity to dialogue with us. A direct link The Nation and the extraordinary men and else needs to know what we know. Give with the citizens we defend is a core element women who serve in the Armed Forces others the benefit of your best thoughts; do of the American construct. require our best efforts—they deserve no not work in isolation. No one of us is as smart less. I know you will deliver. It is my distinct as all of us thinking together. ▼ Professional Development honor to serve alongside you, and I thank you Standardized, interoperable, and Each of you represents the greatest again for your service to our country. JFQ readily available tools, which facilitate col- resource of this organization. Training laboration across a broad set of partners, and education are fundamental to your are needed. Such collaboration tools can professional development and I encourage PETER PACE help us overcome the tyrannies of time and all members of the Joint Staff—officer and General, United States Marine Corps distance and enhance speed and precision enlisted; Active, Guard and Reserve; and Chairman in execution. Common operating pictures civilian—to pursue these opportunities. It of the Joint Chiefs of Staff and common data packaging are essential. is incumbent upon each of us as leaders to ndupress.ndu.edu issue 40, 1st quarter 2006 / JFQ     From the Editor JFQ Gen Peter Pace, USMC Publisher Advisory Committee Lt Gen Michael M. Dunn, USAF National Defense University D BG David A. Armstrong, USA (Ret.) Office of the Chairman o suicide bombers look both ways before they Maj Gen John J. Catton, Jr., USAF The Joint Staff cross the street? That sounds like the start A. Denis Clift Joint Military Intelligence College RADM Patrick W. Dunne, USN Naval Postgraduate School of a bad joke. The answer is yes, but there is Maj Gen Robert J. Elder, Jr., USAF Air War College no punch line. Why they look is an essential Col George E. Fleming, USMC Marine Corps War College Brig Gen (S) Randal D. Fullhart, USAF element of security strategy. Air Command and Staff College MG David H. Huntoon, USA U.S. Army War College Regardless of their motivations, suicide bombers RADM Richard D. Jaskot, USN National War College intend to kill others through the vehicle of their own logi- VADM Timothy J. Keating, USN The Joint Staff Col Walter L. Niblock, USMC cally planned deaths. Terrorists train, create international Marine Corps Command and Staff College funding schemes, and perform extensive tactical planning, MG Kenneth J. Quinlan, Jr., USA Joint Forces Staff College RADM Jacob L. Shuford, USN Naval War College including selecting targets that maximize casualties and BG Volney J. Warner, USA U.S. Army Command and General Staff College wrapping bombs with nails to tear flesh. Their investment of MajGen Frances C. Wilson, USMC time and effort is lost if a truck hits them before they make Industrial College of the Armed Forces it to their intended destination, perhaps a bus stop or cafe. editoriAl BoArd Stephen J. Flanagan National Defense University Military strategists and security analysts since Sun Tzu have agreed that under- Richard K. Betts Columbia University standing the enemy is helpful to commanders. The real art lies in knowing what to Col John M. Calvert, USAF Joint Forces Staff College Stephen D. Chiabotti School of Advanced Air and Space Studies do with the knowledge. This is the essence of effects-based operations: select targets Eliot A. Cohen The Johns Hopkins University that may be subject to influence and tailor methods to achieve effects that support COL Robert A. Doughty, USA U.S. Military Academy Aaron L. Friedberg Princeton University the strategy. Readers will find this common intellectual thread among many articles Alan L. Gropman Industrial College of the Armed Forces in the past four issues of Joint Force Quarterly, and this issue in particular. There is Douglas N. Hime Naval War College Mark H. Jacobsen Marine Corps Command and Staff College a growing recognition beyond military circles of the necessity to understand the dis- Daniel T. Kuehl Information Resources Management College similar Weltanschauung. In the War on Terror, security decisionmakers must consider Col Anne E. McGee, USAF Industrial College of the Armed Forces the worldview that encourages terrorist and rogue leaders to believe they can succeed Thomas L. McNaugher The RAND Corporation and how that view differs from that of peace-loving nations. Kathleen Mahoney-Norris Air Command and Staff College William H.J. Manthorpe, Jr. Joint Military Intelligence College While considering a terrorist dodging traffic, analysts must keep in mind a moral John J. Mearsheimer The University of Chicago imperative: one must not conflate atrocities such as those on September 11 or in LTG William E. Odom, USA (Ret.) Hudson Institute Col Thomas C. Skillman, USAF Air War College Madrid, London, Bali, Israel, Afghanistan, and Iraq with “freedom-fighting.” Indeed, COL Robert E. Smith, USA U.S. Army War College in war, the target may define the act. Purposely murdering noncombatants, beheading Lt Gen Bernard E. Trainor, USMC (Ret.) Harvard University Col Gary West, USAF National War College kidnapped hostages, executing teachers, and driving car bombs into civilian queues contrast starkly with the internationally sanctioned approach of forcing the world’s A ProfessionAl MilitAry And security JournAl worst dictators to stand trial, unabused, for crimes affecting millions. Security professionals and free thinkers also need to guard against the lazy ration- alization that terrorism today is just 12th-century reality judged with 21st-century situ- Contact JFQ to express your opinion by writing to: ational ethics. Recent terrorist attacks demonstrate how far the terrorists of today go beyond international norms, laws, and standards of contemporary conflict. Consider Editor, Joint Force Quarterly NDU Press an Islamic leader’s admonition when his children asked to kill a prisoner: “I do not 300 Fifth Avenue (Bldg. 62, Room 212) want them to get used to shedding blood so young; at their age they do not know what Fort Lesley J. McNair it means to be a [Muslim] or an infidel, and they will grow accustomed to trifling with Washington, DC 20319–5066 the lives of others.” The speaker was a man born in Tikrit, Saddam Hussein’s home- Or email to: town, almost 900 years ago—Saladin. Today’s terrorists are well outside even this 12th- [email protected] century standard. Visit our Web site and feedback form at: In response to the continuing challenges and opportunities provided by today’s ndupress.ndu.edu dynamic strategic environment, this issue of JFQ features General Peter Pace’s first Letters may be edited before publication. “Word from the Chairman,” calling for renewed focus on the War on Terror; a new Forum topic, Homeland Defense and Security; an intriguing U.S. Special Operations Command special feature; and the premiere of a new senior leader interview series, In correction: Jeffrey Jones, in his article “stra- Their Own Words. Although this issue does not directly address the topic of jaywalk- tegic communication: A Mandate for the united ing terrorists, the staff trusts that you will find the essays and articles thought-provok- states,”Joint force Quarterly 39, 3d Quarter ing and welcomes feedback from military and security professional readers alike. 2005, was misidentified as the director for strategic communications and information on the national security council when, in fact, he Colonel Merrick E. Krause, USAF was senior director, strategic communication Director, National Defense University Press and information. Editor, Joint Force Quarterly [email protected]     JFQ / issue 40, 1st quarter 2006 ndupress.ndu.edu