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Simon Reich - The End of Grand Strategy: US Maritime Operations in the Twenty-First Century

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Book:
The End of Grand Strategy: US Maritime Operations in the Twenty-First Century
Author:
Simon Reich / Peter Dombrowski
Publisher:
Cornell University Press
Genre:
Science / Politics
Year:
2018
City:
Ithaca
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In The End of Grand Strategy, Simon Reich and Peter Dombrowski challenge the common view of grand strategy as unitary. They eschew prescription of any one specific approach, chosen from a spectrum that stretches from global primacy to restraint and isolationism, in favor of describing what Americas military actually does, day to day. They argue that a series of fundamental recent changes in the global system, the inevitable jostling of bureaucratic politics, and the practical limitations of field operations combine to ensure that each presidential administration inevitably resorts to a variety of strategies.

Proponents of different American grand strategies have historically focused on the pivotal role of the Navy. In response, Reich and Dombrowski examine six major maritime operations, each of which reflects one major strategy. One size does not fit all, say the authorsthe attempt to impose a single overarching blueprint is no longer feasible. Reich and Dombrowski declare that grand strategy, as we know it, is dead. The End of Grand Strategy is essential reading for policymakers, military strategists, and analysts and critics at advocacy groups and think tanks.

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The End of Grand Strategy

US Maritime Operations in the Twenty-First Century

S IMON R EICH AND P ETER D OMBROWSKI

Cornell University Press

Ithaca and London

For ACDA and AMM, who made this work, and make our lives, so rewarding

Contents

Preface and Acknowledgments

In the opening months of 2017, America is in the process of a dramatic presidential transition. Many commentators are already anticipating drastic foreign policy changes as well as a general sense of administrative incoherence. As evidence, they point to the wide differences between the pronouncements of President Trump and the comments made in their confirmation hearings by many of those he nominated for senior foreign policy positions. Indeed, in Foreign Policy in January 2017, Micah Zenko and Rebecca Friedman Lissner pronounced that Trump had no grand strategy, before he was even sworn in as president.

Clearly, the appointment of military officials to senior policymaking positions suggests a tone and approach different from the Obama administrations. As we argue in this book, military personnel generally lack faith in the virtues of any grand strategy. They are pragmatic problem solvers, more comfortable with a response to specific problems than a recourse to abstract principles. That point was tellingly illustrated in James Mattiss congressional confirmation hearing for the post of Defense Secretary. When Mattis was asked about Russia he responded, Im all for engagement, but we also have to recognize reality and what Russia is up to. Theres a decreasing number of areas where we can engage cooperatively and an increasing number of areas where were going to have to confront Russia." Circumstances outweighed principle in language, policy, and practice.

In this book, we argue that Zenko and Lissners comments about the Trump presidency are unwittingly symptomatic of a larger trend: that the link between values and ways, means and ends defies the deductive formulations about grand strategies debated by academics and formulated by policymakers. We can look back nostalgically at American grand strategy during the Cold War, but its reputed coherence has been replaced by a new series of challenges in the twenty-first century. Those new challenges are not susceptible to treatment with a one-size-fits-all grand strategy.

Now, we suggest, the stresses and strains of American domestic politics and the exigencies of military operations together conspire to sabotage even the most elegantly articulated and carefully constructed general formulations. Faced with a growing array of hostile actors, a plethora of new threats, and novel forms of conflict, American military officials depend far more on context than on central principles as they decide how to act. Grand strategy may retain a role in defining our central values, but those values are a poor guide to policy in the twenty-first century. President Trump will not be alone in finding that grand strategy has little utility. His immediate predecessors discovered the sameneither President Bushs efforts at nation building nor President Obamas pursuit of what we label in this book as Sponsorship were crowned with success.

Strategies, we argue, have to be calibrated according to operational circumstances. They exist in the plural, not in a singular grand strategy. As a result, we show, America employs varying and familiar strategic approaches every day.

Books often have a long pedigree. This one began more than two decades ago. At that time, the authors discussed the possibility of working together as administrators. That particular plot was aborted. But it stimulated a longstanding discussion about administrative failings, principally the gap between strategy, policy, and implementation. Since then, Simon Reich has worked intermittently in both the think tank and academic world. Peter Dombrowskis contribution to public service has been continuous and more substantial, as a regular participant in strategic planning within Americas security community. The consequence of that dialogue is this book, one that focuses on strategy limitations from the ground up and defies the vicissitudes of abstract plans.

Swimming against the tide of conventional knowledge inevitably tests the forbearance of those generous enough to patiently and positively respond to our argument. That list includes Robert Art, Hal Brands, Colin Dueck, Christine Fair, and Andrew Ross who all participated with us on a panel at the International Studies Association. Our gratitude also extends to two anonymous reviewers who provided us with a plentiful number of helpful comments. And specifically, we thank Ryan French who provided us with invaluable research and editing support while serving as a research fellow at the Naval War College. Dean Tom Culora and Andrew Winner of the Naval War College also added substantially to the writing of this book. Thierry Balzacq joined the two of us in our continuing debate two years ago. We appreciate our discussions as we continue to learn from his comparative perspective on the concept of grand strategy.

Peter Dombrowski also wishes to express his gratitude to his colleague Peter Swartz (Captain USN retired), who clarified many naval issues great and small. Peter also benefited from the support of the Watson Institute at Brown University while on leave, particularly the assistance of Richard M. Locke, then its director, and Sue Eckert.

Among Peters intellectual fellow travelers at the Naval War College he thanks Chris Demchak, Mitzy McFate, Michele Poole, Bill Murray, Negeen Pegahi, and Jackie Schneider. Outside the college, Janne Nolan, Judith Reppy, Emily Goldman, Ed Rhodes, Dick Mansbach, John Duffield, and Rodger Payne have all helped him evolve as a scholar. Catherine Kelleher deserves, of course, special mention as she mentored a person congenially averse to mentoring, survived a coauthored volume, and remains a dear friend. Johanna Dombrowski is both a loving daughter and an inspiration for her hard work and tremendous focus.

Simon Reich was the beneficiary of a grant from the Gerda Henkel Foundation and gratefully acknowledges the foundations support. The grant allowed him to spend the summer of 2015 at a visiting fellow at IRSEM in Paris. There, Marianne Peron-Douse, Cline Marange, and Juliette Genevaz provided invaluable expertise and warm support, and its director, Jean-Baptiste Jeangene Vilmer, proved a welcoming host.

Simon acknowledges the role of those transatlantic family and friends whose enduring support has proven invaluable, in good times and bad: Ruth and Peter Ballard, Carol Bohmer and Ned Lebow, Kate Rothko and Ilya Prizel, Wendy Kates and Martin Schain, Anne and Nicholas Catzaras, Helene Bellanger, Eva Bellanger, Sophie Mahieux, and Stephen Perry. He also wishes to express his gratitude to Richard OMeara. Truly, a child of the Enlightenmenta soldier, a lawyer, a poet, and a philosopherRick is a rugged, Irish personification of the Yiddish term mensch .

Like so many before us, we have benefited from the unstinting support of Roger Haydon at Cornell University Press. Roger was instrumental in the framing, writing, and editing of this book. He stewarded it through the review process and weighed in at the end to supervise and participate in the cutting of twenty thousand wordswhile still managing to maintain his sense of humor. Most important, his unwavering faith in this project buttressed our resilience even when we had our doubts.

And last, but truly by no means least, both Simon and Peter wish to thank their respective spouses, inspirations, critics, and musesAriane Chebel dAppollonia and Ann Marie Martino. This book is dedicated to them with gratitudefor all their love and support.

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