HOMELAND SECURITY STRATEGY FROM THE COLD WAR INTO THE .

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HOMELAND SECURITY STRATEGY FROM THE COLD WAR INTO THEGLOBAL WAR ON TERRORISM: AN ANALYSIS OF DETERRENCE,FORWARD PRESENCE, AND HOMELAND DEFENSEA thesis presented to the Faculty of the U.S. ArmyCommand and General Staff College in partialfulfillment of the requirements for thedegreeMASTER OF MILITARY ART AND SCIENCEMilitary History and StrategybySTEPHEN VROOMAN, MAJ, USARB.A., Texas A&M University, College Station, Texas, 1994Fort Leavenworth, Kansas2004Approved for public release; distribution is unlimited.

MASTER OF MILITARY ART AND SCIENCETHESIS APPROVAL PAGEName of Candidate: Major Stephen VroomanThesis Title: Homeland Security Strategy from the Cold War into the Global War onTerrorism: An Analysis of Deterrence, Forward Presence, and Homeland DefenseApproved by:, Thesis Committee ChairColonel Lawyn C. Edwards, M.M.A.S., MemberMr. Robert D. Walz, M.A., MemberColonel Jerry D. Jorgensen, Ph.D.Accepted this 18th day of June 2004 by:, Director, Graduate Degree ProgramsRobert F. Baumann, Ph.D.The opinions and conclusions expressed herein are those of the student author and do notnecessarily represent the views of the U.S. Army Command and General Staff College orany other governmental agency. (References to this study should include the foregoingstatement.)ii

ABSTRACTHOMELAND SECURITY STRATEGY FROM THE COLD WAR INTO THEGLOBAL WAR ON TERRORISM: AN ANALYSIS OF DETERRENCE,FORWARD PRESENCE, AND HOMELAND DEFENSE, by MAJ Stephen Vrooman,110 pages.Homeland security was restored as America’s number one goal of national securitystrategy following 9/11. The evolution of American national security strategy, from theCold War years into the post-9/11 years, demonstrated a historical reliance on three keyelements: deterrence, forward presence, and homeland defenses. Each of these threeelements is reviewed to identify external threats to the homeland. The problem is that thethreat environment changed and the United States strategy did not change. Thus, thecentral research question is: What are the inherent strategic weaknesses in homelandsecurity strategy and what are the implications for the future? A narrative review of eachpresidential administration from the Cold War to the 21st Century emphasizesimplications on national defense policy and military posture. The research demonstratedAmerica’s enduring vulnerabilities include: being slow to act internationally, overextending its military forces, perpetuating a false sense of security, and a propensity torely on deterrence too heavily.iii

ACKNOWLEDGMENTSFor their advice in assembling much of the material upon which this thesis isbased I would like to express my sincere appreciation to the entire Reference andCirculation Staff of the Combined Arms Research Library.To Colonel’s Clay Edwards and Jerry Jorgensen, Ph.D., Lieutenant Colonel TomGoss, Ph.D., Robert Walz, and the Reverend David S. Vrooman, my father, for their veryhelpful and timely suggestions I am deeply obligated.To my Staff Group 1B fellow MMAS candidates, Major Ben Akins andLieutenant Commander Sean Drumheller, I owe an affirmation of sustained supportthroughout the research and writing process.To my lovely bride, Ginah, our sons, Ian and Nate, and our daughter, Jessie, fortheir forgiveness of my continual absence, smiling faces and enduring love.iv

TABLE OF CONTENTSPageMASTER OF MILITARY ART AND SCIENCE THESIS APPROVAL PAGE . iiABSTRACT. iiiACKNOWLEDGMENTS .ivACRONYMS . viiILLUSTRATIONS . viiiTABLES .ixCHAPTER 1. INTRODUCTION .1Opening.1Purpose.3National Defense Policy .4Military Posture .6Limits and Delimitations .7Methodology.8Relevance.9Closing .10CHAPTER 2. THE COLD WAR YEARS (1945-1991) .12National Defense Policy .13The Truman Years (1945-1953) .13The Eisenhower Years (1953-1961).19The Kennedy Years (1961-1963) .23The Johnson Years (1963-1969).25The Nixon Years (1969-1974).28The Ford Years (1974-1977) .29The Carter Years (1977-1981).30The Reagan Years (1981-1989).31The Bush Years (1989-1991).35Military Posture .36The Truman Years (1945-1953) .36The Eisenhower Years (1953-1961).39The Kennedy Years (1961-1963) .41The Johnson Years (1963-1969).42The Nixon Years (1969-1974).43The Ford Years (1974-1977) .43v

The Carter Years (1977-1981).44The Reagan Years (1981-1989).45The Bush Years (1989-1991).47Themes.49National Defense Policy .49Military Posture .54CHAPTER 3. THE INTERWAR YEARS (1991-2001) .64National Defense Policy .64The Bush Years (1991-1993).64The Clinton Years (1993-2001).67Military Posture .71The Bush Years (1991-1993).71The Clinton Years (1993-2001).71Themes.73National Defense Policy .73Military Posture .76CHAPTER 4. THE GLOBAL WAR ON TERRORISM (2001- ) .81National Defense Policy .81The Bush Years (2001-2003).81Military Posture .84The Bush Years (2001-2003).84Themes.85National Defense Policy .85Military Posture .89CHAPTER 5. THEMES AND FUTURE IMPLICATIONS.93Themes.93National Defense Policy .94Military Posture .101Future Implications .102National Defense Policy .102Military Posture .106FIGURES.109GLOSSARY .121BIBLIOGRAPHY.122INITIAL DISTRIBUTION LIST .127CERTIFICATION FOR MMAS DISTRIBUTION STATEMENT .128vi

ACRONYMSABMAntiballistic MissileDoDDepartment of DefenseFEMAFederal Emergency Management AgencyGDPGross Domestic ProductGWOTGlobal War on TerrorismICBMIntercontinental Ballistic MissileMADMutual Assured DestructionMOOTWMilitary Operations Other Than WarMRCMajor Regional ConflictNATONorth Atlantic Treaty OrganizationNORTHCOM United States Army Northern CommandNSPDNational Security Presidential DirectiveNSHSNational Strategy for Homeland StrategyOPTEMPOOperational TempoPDDPresidential Decision DirectiveSALTStrategic Arms Limitation TalksSCCSmall-Scale ContingencySDIStrategic Defense InitiativeSLBMSubmarine Launched Ballistic MissileSTARTStrategic Arms Reductions TalksWMDWeapons of Mass Destructionvii

ILLUSTRATIONSPageFigure 1. DoD Active Duty Military Personnel Strength Levels, FYs 1950-2002.6Figure 2. Military Posture--President Truman Years (1945-1952).109Figure 3. Defense Spending Percentages (1945-1960) .110Figure 4. Military Posture--President Eisenhower Years (1953-1960).111Figure 5. Military Posture--1960s .112Figure 6. Defense Spending Percentages (1961-1973) .113Figure 7. Military Posture--1970s .114Figure 8. Defense Spending Percentages (1974-2003) .115Figure 9. Military Posture--1980s .116Figure 10. Military Posture--Post-Cold War Years .117Figure 11. Increased Operational Tempo (1950-2002).118Figure 12. Forward Stationed Active Duty Army Comparison (1978-2003) .119Figure 13. US Civilian to Military Population Comparison .120viii

TABLESPageTable 1. Themes of Homeland Security Strategy .9Table 2. Implications of Homeland Security Strategy.94ix

CHAPTER 1INTRODUCTIONOpeningThe United States is no longer impervious to aggression on its own shore.America’s inability to rapidly respond to the regime responsible for the aerial attacks onthe Pentagon and Twin Towers in September 2001 stimulated a call to arms. There wasan immediate reconciliation of adversary capabilities and national security strategy.Specifically, the defense of the homeland and its security received unprecedentedbacking, both verbal and financial, as the foremost goal of national security. Homelandsecurity was forced to the forefront of American policymaking out of necessity.The president of the United States and the US Congress responded to the attackson military and financial institutions with immediate approval of funding to narrow thegap between adversary capabilities and homeland security capabilities. The financialsupport was budgeted at 68.7 billion for fiscal year (FY) 2003 alone.1President George W. Bush also proposed and Congress accepted “the mostextensive reorganization of the federal government in the past fifty years”2 with theestablishment of the Department of Homeland Security. The Department of HomelandSecurity would provide greater unity of purpose for the United States’ overlappingfederal, state, and local jurisdictions comprised of more than 87,000 differentjurisdictions.3 The department would also ensure greater accountability across 22 entitieswith critical homeland security missions including the Central Intelligence Agency, theFederal Bureau of Investigation, and the United States Coast Guard. 41

With so many overwhelming changes and the magnitude of allocated funding,homeland security’s renewal had the trappings of a new buzzword, fad, or a revolution.However, reality is quite the contrary. Security of the homeland has always been a tenantof national strategy. Since the American Revolution, the United States has used itsgeographical location on the globe to strategic advantage. Distanced from the other sixcontinents of the world by oceans on its east and west and bordered on the north andsouth by two nonthreatening neighbors, the United States grew from a relatively peacefuland privileged infancy. It emerged from its isolationism during World War I, found equalfooting throughout World War II, and sparred with fellow superpower Russia beforeleading the world into the twenty-first century with unparalleled military combat powerand great economic and political influence.As the United States grew in influence and affluence, technology outpaced allother forms of human progress. The task of defending the United States changeddramatically. Adversaries “in the past needed great armies and great industrialcapabilities to endanger America. Now, shadowy networks of individuals can bring greatchaos and suffering to our shores for less than it costs to purchase a single tank.” 5Geographical location of the United States is still a distinct advantage but thetechnological advancement of weapons and individual capability to travel worldwide inopen societies broaden homeland vulnerability.The United States invests a tremendous amount of research in methods ofwarfare, but the emphasis has been on tactics and the execution of nuclear, conventional,and low-intensity conflict warfare. Since the major terrorist attacks in 2001, there hasbeen an explosion of terrorism research in the form of war gaming, conspiracy theorizing,2

and drawing conclusions from hindsight. Although the United States has been underinternational terrorist attack for over forty years, relatively little insight exists ineffectively confronting terrorism, politically or militarily. Clausewitz would argue theneed to “define the kind of war on which the nation is embarking” in order to determinethe most appropriate tactics and strategy. 6 Understanding how America defines andapproaches war in the contemporary environment provides insight into mitigatingterrorism as the nature of future warfare.PurposeThis thesis examines how the United States’ approach to war shifted emphasisfrom protecting the homeland with passive defensive measures in the twentieth century toboth reactive and proactive action against the wide array of asymmetric threats posedtoday by international terrorism. More specifically, this thesis investigates the influenceof American national strategy as it related to defending the North American continentduring the period from the Cold War through post-11 September.The US national defense policy and military posture are evaluated against thestrategic aims of deterrence, forward presence, and homeland defenses. In this thesis,deterrence is consider a passive form of prevention as it primarily perpetuates a threatrather than reduces one. Forward presence, typically measured in troop commitment, isan active form of prevention, as well as a response to failed deterrence. And homelanddefenses are the measures the nation takes in response to an attack; primarily reactive interms of establishing a perimeter defense and consequence management, but alsoinclusive of counterattacking.3

National Defense PolicyNational defense policy evolved from international isolationism to a Westernhemispheric defense in World War II in order to meet adversaries on the sea or on theirown soil. Merely staying at home and relying on coastal defenses was unacceptableanymore, and the national will called for American action. The Japanese attack on PearlHarbor triggered a call to arms fueled by the moral high ground of protecting freedomand resourced with the entire American economy and industrial capacity. National policychanged not only to protect the American population, but also to actively preserve thefounding principles of “life, liberty, and the pursuit of happiness” from internationalaggression.Following World War II, national policy expanded beyond just concern for thewestern half of the globe to address the threat of Soviet Communism spreading globallyduring the Cold War. Most nation-states quickly aligned with the communists or thedemocracies, and clear lines of demarcation were evident to the degree of building wallsto divide Germany and Korea, not just ideologica

Cold War years into the post-9/11 years, demonstrated a historical reliance on three key elements: deterrence, forward presence, and homeland defenses. Each of these three elements is reviewed to identify external threats to the homeland. The problem is that the threat environment changed and the United States strategy did not change. Thus, the

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