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N A V A L W A R C O L L E G NAVAL WAR COLLEGE REVIEW E R E V I E W Spring 2009 Volume 62, Number 2 S p nir g 2 0 0 9 NIUTEEDHTSTATES NAVALEWGEALRLOC VIRIBUS MARI VICTORIA Report Documentation Page Form Approved OMB No. 0704-0188 Public reporting burden for the collection of information is estimated to average 1 hour per response, including the time for reviewing instructions, searching existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information, including suggestions for reducing this burden, to Washington Headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, Arlington VA 22202-4302. Respondents should be aware that notwithstanding any other provision of law, no person shall be subject to a penalty for failing to comply with a collection of information if it does not display a currently valid OMB control number. 1. REPORT DATE 3. DATES COVERED 2009 2. REPORT TYPE 00-00-2009 to 00-00-2009 4. TITLE AND SUBTITLE 5a. CONTRACT NUMBER Naval War College Review, Spring 2009,Volume 62, Number 2 5b. GRANT NUMBER 5c. PROGRAM ELEMENT NUMBER 6. AUTHOR(S) 5d. PROJECT NUMBER 5e. TASK NUMBER 5f. WORK UNIT NUMBER 7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES) 8. PERFORMING ORGANIZATION Naval War College,,686 Cushing Rd.,,Newport,,RI,02841 REPORT NUMBER 9. 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 147 unclassified unclassified unclassified Report (SAR) Standard Form 298 (Rev. 8-98) Prescribed by ANSI Std Z39-18 Cover USS Laboon (DDG-58) on Port Visit Toulon, France #2,by Commander Monica Allen Perin, USNR, watercolor on paper, 2004, Navy Art Collection, 2004-101-4. TheArleigh Burke–class guided-missile destroyerLaboonenters Toulon after operations in the Mediterra- nean in support of Operation IRAQI FREEDOM. Commander Perin, who served on active duty as a Supply Corps officer for twelve years, today paints, ex- hibits, and teaches in France and Italy. She has produced numerous paintings for the U.S. Navy’s Combat Art Program and the Navy Art Collection since being recalled in 1995 for duty in Zagreb, Croatia. Courtesy of the Navy Art Collection. NAVAL WAR COLLEGE REVIEW Spring 2009 Volume 62, Number 2 NAVALWARCOLLEGEPRESS 686 Cushing Road Newport, RI 02841-1207 NAVALWARCOLLEGEPRESSADVISORYBOARD PRESIDENT,NAVALWARCOLLEGE Adam Bellow Rear Adm. James P. Wisecup, USN Capt. Wayne P. Hughes, USN (Ret.) PROVOST Gale A. Mattox Amb. Mary Ann Peters Robert A. Silano Marin Strmecki DEANOFNAVALWARFARESTUDIES Robert C. Rubel Dov S. Zakheim NAVALWARCOLLEGEPRESS NAVALWARCOLLEGEREVIEWEDITORIALBOARD Carnes Lord,Editor Audrey Kurth Cronin Pelham G. Boyer,Managing Editor Peter Dombrowski Phyllis P. Winkler,Book Review Editor Stephen Downes-Martin Lori A.Almeida,Secretary and Circulation Manager Col. Theodore L. Gatchel, USMC (Ret.) FrankUhlig, Jr.,Editor Emeritus Capt. Dennis Mandsager, JAGC, USN (Ret.) Naval War College Review William C. Martel Code 32, Naval War College Col. Mackubin Owens, USMC (Ret.) 686 Cushing Rd., Newport, RI 02841-1207 Lt. Cdr. Derek S. Reveron, USN Fax: 401.841.1071 Capt. Peter M. Swartz, USN (Ret.) DSNexchange, all lines: 948 Scott C. Truver Website: www.usnwc.edu/press Karl F. Walling James J. Wirtz Editor, Circulation, or Business 401.841.2236 [email protected] Managing Editor 401.841.4552 [email protected] Newport Papers, Books [email protected] Essays and Book Reviews 401.841.6584 [email protected] Other Naval War College Offices 401.841.3089 TheNavalWarCollegeReviewwasestablishedin1948asaforumfordiscussionof publicpolicymattersofinteresttothemaritimeservices.Thethoughtsandopinions expressedinthispublicationarethoseoftheauthorsandarenotnecessarilythose oftheU.S.government,theU.S.NavyDepartment,ortheNavalWarCollege. The journal is published quarterly. Distribution is limited generally to commands andactivitiesoftheU.S.Navy,MarineCorps,andCoastGuard;regularandreserve officersofU.S.services;foreignofficersandcivilianshavingapresentorprevious affiliationwiththeNavalWarCollege;selectedU.S.governmentofficialsandagen- cies;andselectedU.S.andinternationallibraries,researchcenters,publications,and educationalinstitutions. Contributors Please request the standard contributors’ guidance from the managing editor or access it online before submitting manuscripts.TheNavalWarCollegeReviewnei- theroffersnormakescompensationforarticlesorbookreviews,anditassumesno responsibilityforthereturnofmanuscripts,althougheveryeffortismadetoreturn thosenotaccepted.Insubmittingwork,thesenderwarrantsthatitisoriginal,that itisthesender’sproperty,andthatneitheritnorasimilarworkbythesenderhas beenacceptedorisunderconsiderationelsewhere. Permissions Reproduction and reprinting are subject to the Copyright Act of 1976 and appli- cable treaties of the United States. To obtain permission to reproduce material bearing a copyright notice, or to reproduce any material for commercialpur- poses,contacttheeditorforeachuse.Materialnotbearingacopyrightnotice may be freely reproduced for academic or other noncommercial use; however, it is requested that the author andNaval War College Reviewbe credited and that the editor be informed. Periodicals postage paid at Newport, R.I. POSTMASTERS, send address changes to:Naval War College Review,Code 32S, Naval War College, 686 Cushing Rd., Newport, R.I. 02841-1207. ISSN0028-1484 CONTENTS FromtheEditors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 President’sForum . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 TheNavy’sChangingForceParadigm . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 Robert C. Rubel The U.S. Navy finds itself on the cusp of a shift in the makeup and use of its forces as fundamental as that from sail to steam or from the battleship to the aircraft carrier. The shift has, in fact, already begun. Is the Navy truly ready and willing to take the next steps? The Heart of an Officer Joint,Interagency,andInternationalOperationsandNavyCareerDevelopment. . . 27 Admiral James Stavridis, U.S. Navy, and Captain Mark Hagerott, U.S. Navy The Navy’s current system for developing Unrestricted Line officers is stretched to the breaking point. External realities and circumstances unique to the Cold War produced the existing system. Changed conditions now necessitate reform and point to a comprehensive “three track” system for line officers. Gunboats for China’s New “Grand Canals”? ProbingtheIntersectionofBeijing’sNavalandOilSecurityPolicies . . . . . . . . . . . . 43 Andrew Erickson and Lyle Goldstein China’s seaborne energy imports have become as vital a lifeline as was a waterway known as the “Grand Canal” in the central part of the nation a millennium ago. But the strategic environment is very different today. Scholars of the Naval War College’s China Maritime Studies Institute examine how Chinese analysts perceive their oil-security challenges. Maritime History TheNavalBattleofParis. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 77 Jerry W. Jones It was only a diplomatic “battle,” but disputes among the victors of World War I over the disposition of the German navy and freedom of the seas threatened to poison relations between Britain and the United States and nearly disrupted the Paris Peace Conference. The episode speaks to the importance of cooperation for peace and security. 2 NAVALWARCOLLEGEREVIEW Fundamentals of Strategy TheLegacyofHenryEccles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91 Scott A. Boorman Each generation must educate leaders for modern high command, creating an intellectual organization for the study of strategy and an environment conducive to original, valid, and valuable strategic insights. There are few better starting points than the pioneering contributions of the U.S. Naval War College in the age of Admiral Henry E. Eccles. Book Reviews Forgotten Continent: The Battle for Latin America’s Soul,by Michael Reid reviewedbyPaulTaylor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117 The Dragon Looks South: China and Southeast Asia in the New Century,by Bronson Percival reviewedbyRonRatcliff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118 Strategic Challenges: America’s Global Security Agenda, edited by Stephen J. Flanagan and James A. Schear reviewedbyRichardNorton. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119 War and the Engineers: The Primacy of Politics over Technology, by Keir Lieber reviewedbyS.MikePavelec . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 120 Marchingtoward Hell: America and Islamafter Iraq,by Michael Scheuer reviewedbyRobertHarris . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121 The Cold War and the United States Information Agency: American Propagandaand Public Diplomacy, 1945–1989,by Nicholas J. Cull reviewedbyBruceGregory. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122 Seduced by Secrets: Inside the Stasi’s Spy-Tech World,by Kristie Macrakis reviewedbyJohnR.Arpin . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 123 Nexus: Strategic Communications and American Security in World War I, by Jonathan Reed Winkler reviewedbyDaleC.Rielage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 124 Hitler,the Germans, andthe Final Solution,by Ian Kershaw reviewedbyStephenKnott. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125 Charts of War: The Maps and Charts That Have Informed and Illustrated War at Sea,by John Blake reviewedbyRalphC.Weiss . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126 InMyView . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129 ReflectionsonReading. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 139 FROM THE EDITORS Overthelastseveralmonths,thestrategicenvironmenthasbeenprofoundlyal- teredbythefinancialcrisisthathasengulfedWallStreetandcontinuestospread throughouttheAmericanaswellastheglobaleconomy.Theimplicationsofthis crisisforthedefensestrategyandprogramsoftheUnitedStatesunderthenew administrationofPresidentBarackObamaremainunclear,butitseemsincreas- inglyobviousthattheywillbesubstantial,andinsomerespectsperhapsgame changing. Secretary of Defense Robert M. Gates has warned of leaner budget times ahead and indicated that all major defense programs will be subject to challenge in the course of this year’s accelerated Quadrennial Defense Review (nowduetobecompletedbyAugust).Hehasalsomadeitclearthatheplansto takeapersonalinterestinfixingthedefenseacquisitionprocess.Thislargercon- textneedstobekeptinmindaswewrestlewiththequestionofthefutureforce structureoftheU.S.Navy.Inourleadarticleinthisissue,“TheNavy’sChanging Force Paradigm,”Robert C.Rubel,dean of the Naval War College’s Center for NavalWarfareStudies,attemptstoadvancethediscussionof thisvitalissuein thelightoftheNavy’srecentlypromulgatedmaritimestrategydocumentaswell as the evolving strategic and technological landscape. Rubel suggests that we haveenteredaperiodoftransitionfromthecarrier-centricnavyofWorldWarII and the Cold War to a new era of more distributed and diversified naval plat- forms,criticallysupportedbyanewglobalcommand-and-controlarchitecture. ButtheNavy’sabilitytooperateeffectivelyintheworldoftodayandtomor- rowwilldependnotonlyonitsplatformsandweaponry.Theconflictsinwhich thiscountryhasbeencontinuouslyengagedforoversevenyearshavedemon- stratedtheimportanceof cultivatingagenerationof navalofficersfullyprofi- cient in joint, interagency, and combined operations; further, the Navy’s new maritimestrategyhasemphasizedthevitalroleofinternationalsecuritycoop- erationatsea.IntheviewofAdmiralJamesStavridis,currentlycommanderof the U.S. Southern Command, and Captain Mark Hagerott of the U.S. Naval Academy,theemergingrequirementsleviedonnavalofficerscallforabroadre- thinkingofthesystemofofficereducation,assignment,andpromotion.Intheir article “The Heart of an Officer: Joint, Interagency, and International Opera- tions and Navy Career Development,” Stavridis and Hagerott argue that it is