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SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES) 10. SPONSOR/MONITOR’S ACRONYM(S) 11. SPONSOR/MONITOR’S REPORT NUMBER(S) 12. DISTRIBUTION/AVAILABILITY STATEMENT Approved for public release; distribution unlimited 13. SUPPLEMENTARY NOTES 14. ABSTRACT 15. SUBJECT TERMS 16. SECURITY CLASSIFICATION OF: 17. LIMITATION OF 18. NUMBER 19a. NAME OF ABSTRACT OF PAGES RESPONSIBLE PERSON a. REPORT b. ABSTRACT c. THIS PAGE Same as 146 unclassified unclassified unclassified Report (SAR) Standard Form 298 (Rev. 8-98) Prescribed by ANSI Std Z39-18 This product is part of the RAND Corporation monograph series. RAND monographs present major research findings that address the challenges facing the public and private sectors. All RAND monographs undergo rigorous peer review to ensure high standards for research quality and objectivity. U.S. Global Defense Posture, 1783–2011 Stacie L. Pettyjohn Prepared for the United States Air Force Approved for public release; distribution unlimited PROJECT AIR FORCE The research described in this report was sponsored by the United States Air Force under Contract FA7014-06-C-0001. Further information may be obtained from the Strategic Planning Division, Directorate of Plans, Hq USAF. Library of Congress Cataloging-in-Publication Data Pettyjohn, Stacie L. U.S. global defense posture, 1783/2011 / Stacie L. Pettyjohn. pages cm Includes bibliographical references. ISBN 978-0-8330-7696-0 (pbk. : alk. paper) 1. United States—Defenses—History. 2. United States—Armed Forces—Foreign countries. 3. Military bases, American—Planning. 4. United States—Military policy. I. Title. UA23.P49 2012 355'.033073—dc23 2012045707 The RAND Corporation is a nonprofit institution that helps improve policy and decisionmaking through research and analysis. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R ® is a registered trademark. © Copyright 2012 RAND Corporation Permission is given to duplicate this document for personal use only, as long as it is unaltered and complete. Copies may not be duplicated for commercial purposes. Unauthorized posting of RAND documents to a non-RAND website is prohibited. RAND documents are protected under copyright law. For information on reprint and linking permissions, please visit the RAND permissions page (http://www.rand.org/publications/ permissions.html). Published 2012 by the RAND Corporation 1776 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 4570 Fifth Avenue, Suite 600, Pittsburgh, PA 15213-2665 RAND URL: http://www.rand.org To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: [email protected] Preface Today, in response to changes in the political, fiscal, and strategic envi- ronments, the United States is revising its global defense posture. The Department of Defense has announced a number of initiatives that are a part of its rebalancing toward Asia, while, at the same time, maintaining a significant presence in Southwest Asia, even as U.S. forces are drawn down in Afghanistan. As these plans move forward, it is important to recognize that America’s overseas military presence, as it currently exists in terms of scope and scale, is largely a legacy of the Cold War and that, over the past two centuries, the United States repeat- edly adjusted its posture in response to the emergence of new types of threats, technological innovations, and the availability of overseas bases. Understanding past U.S. postures, what they looked like, why they were implemented, and why they changed can provide important insights for policymakers as they look to modify today’s global defense posture in the coming years. This monograph is a product of the RAND Project AIR FORCE (PAF) continuing program of self-initiated research. Support for this research was provided by the research and development provisions of PAF’s contract with the U.S. Air Force. The study described in this report was administered by the Strategy and Doctrine Program within PAF. This research should be of interest to officials in the services, combatant commands, and the Department of Defense, as well as to those in the broader defense policy community. iii iv U.S. Global Defense Posture, 1783–2011 RAND Project AIR FORCE RAND Project AIR FORCE (PAF), a division of the RAND Corpo- ration, is the U.S. Air Force’s federally funded research and development center for studies and analyses. PAF provides the Air Force with independent analyses of policy alternatives affecting the development, employment, combat readiness, and support of current and future air, space, and cyber forces. Research is conducted in four programs: Force Modernization and Employment; Manpower, Personnel, and Train- ing; Resource Management; and Strategy and Doctrine. Additional information about PAF is available on our website: http://www.rand.org/paf/ Contents Preface .............................................................................iii Figures ............................................................................ vii Tables .............................................................................. ix Summary .......................................................................... xi Acknowledgments .............................................................xvii Abbreviations ....................................................................xix ChAPTer One Introduction .......................................................................1 ChAPTer TwO Framework for the U.S. Posture ...............................................7 Extent of the U.S. Overseas Military Presence .................................9 The Advantages of Stationing Forces in the Continental United States ................................................................9 The Advantages of Positioning Forces Outside the Continental United States ............................................... 10 Operational Orientation of U.S. Forces ....................................... 11 ChAPTer Three Continental Defense, 1783–1815 ............................................ 15 ChAPTer FOUr Continental Defense and Commercialism, 1815–1898 .................. 19 ChAPTer FIve Transition Period, 1898–1905 ................................................ 25 v vi U.S. Global Defense Posture, 1783–2011 ChAPTer SIx Oceanic Posture, 1906–1938 ................................................. 31 ChAPTer Seven hemispheric Defense, 1938–1941 ........................................... 39 ChAPTer eIghT Perimeter Defense in Depth, 1943–1949 ................................... 49 ChAPTer nIne Consolidated Defense in Depth, 1950–1989 .............................. 61 Transitioning from Perimeter Defense in Depth to Consolidated Defense in Depth ........................................................... 77 ChAPTer Ten expeditionary Defense in Depth, 1990–2011 ............................. 83 Comparing the Global Defense Posture Review to Perimeter Defense in Depth ...................................................................... 94 ChAPTer eLeven Findings and recommendations ............................................. 97 Two Models of Overseas Basing in the Modern Era: The Mutual Defense and Transactional Models ......................................100 The Mutual Defense Model .................................................102 The Transactional Model ....................................................103 Changing Models .............................................................104 Recommendations ..............................................................106 The Importance of Strategic Planning ......................................106 Think Globally ................................................................106 Connect Basing Efforts Inside and Outside the Continental United States .............................................................107 Develop a Lighter and More Agile Footprint Overseas ..................108 Opportunistically Expand the U.S. Presence Abroad in Critical Regions ....................................................................109 Concluding Thoughts .......................................................... 110 references ....................................................................... 111 Figures S.1. Ideal Type Defense Postures, 1783–Present .................... xiii 2.1. Ideal Type Defense Postures, 1783–Present .......................8 3.1. Continental Defense ................................................ 15 4.1. Continental Defense and Commercial Posture ................. 20 4.2. Continental and Commercial Posture, 1815–1898 ............. 23 5.1. Transition Period, 1898–1905 ..................................... 27 6.1. Oceanic Posture ..................................................... 31 6.2. Oceanic Posture, 1906–1938 ...................................... 34 7.1. Hemispheric Defense ............................................... 39 7.2. Hemispheric Defense, 1938–1941 ................................ 46 8.1. Perimeter Defense in Depth ....................................... 50 8.2. Basing Requirements According to JCS 570/2 .................. 51 8.3. Basing Requirements According to JCS 570/40 ................ 52 8.4. Peacetime U.S. Military Access Before the Outbreak of the Korean War ..................................................... 58 9.1. Consolidated Defense in Depth, 1950–1989 .................... 62 9.2. Consolidated Defense in Depth, December 1955 .............. 65 9.3. USAF Tactical Fighter Squadrons in the Pacific, 1964–1973 ........................................................... 73 9.4. The Locations of U.S. Army Divisions, 1950–1980 ............ 74 9.5. Major Components of Consolidated Defense in Depth, 1950–1989 ........................................................... 75 10.1. Expeditionary Defense in Depth ................................. 84 10.2. Major Changes Proposed by the GDPR ......................... 90 10.3. Expeditionary Defense in Depth in 2011: Legacy and New Commitments ................................................ 94 vii