Max raises important issues with Secretary Gates’s new proposal to shutter Joint Forces Command (JFCOM) in southeastern Virginia. I’m not convinced that Gates thinks JFCOM’s job can be done without JFCOM. I suspect he may think it’s not important enough to justify the organization and expenses of a major combatant command.
Gates’s budgetary de-emphasis on force transformation and future weapon systems has stood in contrast to the Rumsfeld-era environment in which JFCOM flourished. Gates was also the secretary of defense in the summer of 2008, when General Mattis, then the new JFCOM commander, took the unusual but necessary step — all but invisible outside military circles — of repudiating the course on which JFCOM had set the once-pervasive, cutting-edge warfare concept of “effects-based operations” (EBO). EBO had become tied, in the minds of many, to our operational failures in Iraq. A widely read U.S. Army War College paper further implicated EBO in the IDF’s failures in the 2006 conflict with Hezbollah. EBO has been a drag on the image of what JFCOM was created to do: look toward the future of joint warfare.
Rumsfeld went too far in the direction of transformation, at the expense of current operations. But Gates may well be going too far in the opposite direction. With Latin America, the Middle East, and Asia all arming up, and Russia and China accelerating their weapons-development programs, now is not a good time to preserve our defense-planning assumptions in amber. I’m not as concerned about the disestablishment of JFCOM as I am about the potential for ignoring the joint-warfighting implications of emerging trends abroad. JFCOM’s utility in that regard has been unique: unlike the Joint Staff in Washington, its principal orientation is theory, application, and the lessons from combat — not on the Defense Department budget or the programming cycle.
One feature of JFCOM is likely to slow down efforts to eliminate it. I don’t see any acknowledgment in the Gates proposal that JFCOM plays a key role with the NATO command in Norfolk, Allied Command Transformation (ACT). In the NATO reorganization of 2002, ACT was assigned a mission of training and doctrine development parallel to that of JFCOM. In fact, until 2009, when a French officer assumed command of ACT, the JFCOM commander headed it as well.
NATO’s latest round of strategic thinking produced a report, issued in May 2010, which highlights ACT’s role and calls for “a bolder mandate, greater authorities [sic], and more resources” for the command, identifying it as the key to an overdue transformation of NATO force organization and doctrine. Disestablishing JFCOM, the U.S. counterpart to ACT — in fact, the model on which ACT was designed — would put us noticeably out of step with the direction currently proposed for the NATO alliance. That’s worth a pause for reflection. There are ways to cut contractor positions and slice fat without pulling the plug on a core nexus with our NATO allies.