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Visit our website for other free publication downloads http://www.StrategicStudiesInstitute.army.mil/ To rate this publication click here. 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 reports, 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. Strategic Studies Institute Monograph A NATIONAL SECURITY STAFF FOR THE 21ST CENTURY Jack A. LeCuyer December 2012 The views expressed in this report are those of the author and do not necessarily reflect the official policy or position of the Depart- ment of the Army, the Department of Defense, or the U.S. Gov- ernment. Authors of Strategic Studies Institute (SSI) publications enjoy full academic freedom, provided they do not disclose clas- sified information, jeopardize operations security, or misrepre- sent official U.S. policy. 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ISBN 1-58487-558-5 ii CONTENTS Foreword ..........................................................................v About the Author ...........................................................ix Summary .........................................................................xi Part 1: Legacy 1947-89 National Security System ...................................................1 Part 2: New Global Security Environment ................21 Part 3: National Security System for the 21st Century .......................................................33 Part 4: National Security Staff Roles for the 21st Century .......................................................37 Part 5: National Security Staff Strategic Management Functions ....................................51 Part 6: Development of the National Security System ................................................. 83 Part 7: Strategic Choice: Resourcing the National Security Staff to Perform the Strategic System Management Role ......................................................................95 Part 8: Strategic Partnership: Fixing the Future Rather Than the Past ................... 103 Endnotes .......................................................................115 Appendix I ................................................................... 133 Appendix II ..................................................................137 iii FOREWORD Transformation of our national security system to meet the challenges of the 21st century has been the focus of a number of prominent studies dating from the end of the Cold War. The Strategic Studies In- stitute (SSI) of the U.S. Army War College (USAWC) has been an integral part of this critical national dia- logue throughout. In November 2000, SSI published Organizing for National Security, edited by Dr. Doug- las Stuart of Dickinson College. In March 2008, SSI co-sponsored a conference on “Reform and the Next President’s Agenda” with the Project on National Se- curity (PNSR) at the Bush School of Government and Public Service at Texas A&M. This conference was fol- lowed by publication of Dr. Gabriel Marcella’s book, Affairs of State: The Interagency and National Security, in December 2008. More recently, on April 22, 2010, the Bush School of Government and Public Service at Texas A&M University and SSI conducted a collo- quium in Washington, DC, titled “2010: Preparing for a Mid-Term Assessment of Leadership and National Security Reform in the Obama Administration.” In order for institutional reform to succeed, it must be guided by a coherent and compelling national security strategy anchored in widely-accepted national interests. Shortly after this last conference, President Barack Obama’s National Security Strategy was issued in May 2010, well after the publication of the Department of Defense (DoD) Quadrennial Defense Re- view (QDR) in December 2009. The National Security Strategy sought both to lay out our national interests in a radically changed post-Cold War security environ- v ment and to outline a series of organizational reforms to oversee and execute the strategy. Following a year of study after the publication of the National Security Strategy, SSI hosted a workshop chaired by Dr. Robin Dorff on the new National Secu- rity Staff in Washington, DC, on September 26, 2011. Participants included former National Security Advi- sor General James Jones and former Director of Na- tional Intelligence Admiral Dennis Blair, as well as a number of well-known practitioners and theoreticians in the field. The workshop focused on management of our national security apparatus as a comprehensive system at the strategic level with issue management decentralized in the departments, agencies, and interagency teams. While there was broad agreement on the need for strategic management of the national security system, there was little consensus as to where that management function should reside. Congressional interest in national security reform began in 2007 at the behest of then Chairman of the Joint Chiefs of Staff General Peter Pace. Funding was provided in 2008 and 2009 for an extraordinarily comprehensive study of the national security system that was conducted by the Project on National Security (PNSR). However, efforts to push national security reform from study concepts and recommendations to reality have, for the most part, been unsuccessful. Sensing a lack of interest on the part of the Obama administration, Congress responded with Section 1072 of the FY 2012 Defense Authorization Act with a requirement for the President to respond to the Con- gress with a detailed organizational plan for imple- menting the National Security Strategy. vi While many of the organizational and system changes proposed by various practitioners and studies could be implemented through Executive Order, history indicates that these changes would probably not endure across administrations. One need only look at the PDD-56 reforms proposed by President Bill Clinton in the mid-1990s or Executive Order 13434 (National Security Professional Development) issued by President George W. Bush. Both were undercut by vigorous opposition from the departments and agencies, and neither effort was tied to funding and addi- tional personnel resources from Congress. Enduring change and proper resourcing come from legislation and congressional mandates such as the National Security Act of 1947 (as amended), the Goldwater-Nichols Act of 1986, the creation of the De- partment of Homeland Security in 2002, and the Intel- ligence Reform and Terrorism Prevention Act of 2004. Section 1072 of the FY 2012 National Defense Au- thorization Act offers a strategic opportunity for the Congress and the executive branch to come together to design and organize a national security system for the 21st century. The National Security Act of 1947 was designed to overcome problems encountered during World War II. Enactment of this foundational legislation required a reorganization of congress, accomplished in 1946. Section 1072 of the FY 2012 National Defense Autho- rization Act offers an historic opportunity to “fix the future.” A good place to start is at the top of our national security system—the National Security Staff. This monograph provides an organizational concept for strategic management by the National Security Staff of our national security system that would be underwritten by congressional oversight and funding. vii SSI is pleased to publish this monograph, be- lievings that the individual research, analysis, and recommendations expressed within will contribute importantly to the ongoing debates over national security reform. DOUGLAS C. LOVELACE, JR. Director Strategic Studies Institute viii