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RUMSFELD, THE GENERALS, AND THE STATE OF U.S.

CIVIL-MILITARY RELATIONS

Mackubin Thomas Owens

I n the Summer 2002 issue of the Naval War College Review, the eminent historian
Richard Kohn lamented the state of civil-military relations, writing that it was
“extraordinarily poor, in many respects as low as in any period of American
1
peacetime history.” The article was based on the keynote address that Professor
Kohn had delivered as part of a Naval War College conference on civil-military
relations in the spring of 1999. Accordingly, the focus of attention was on prob-
lems that had bedeviled the Clinton administration.
Some of the most highly publicized of these civil-military problems reflected
cultural tensions between the military as an institution and liberal civilian society,
mostly having to do with women in combat and open
Dr. Owens is Assistant Dean of Academics for Electives
at the Naval War College. Earning his PhD in politics homosexuals in the military. The catalogue included
from the University of Dallas, he has taught at the Uni- “Tailhook,” the Kelly Flinn affair, the sexual harassment
versity of Rhode Island, the University of Dallas, Catho-
lic University, the Marine Corps School of Advanced
scandal at Aberdeen, Maryland, and the very public
Warfighting, Boston University, and at the Naval War exchange regarding homosexuals between newly
College as professor of national security affairs. He is a elected President Bill Clinton on the one hand and the
senior fellow at the Foreign Policy Research Institute in
Philadelphia and has been a consultant to the Los uniformed military and Congress on the other.
Alamos National Laboratory, Headquarters Marine Other examples of civil-military tensions included
Corps, and the Joint Staff. Dr. Owens won the Silver
the charge that Gen. Colin Powell, then chairman of
Star as a Marine Corps infantry platoon commander in
Vietnam; he retired from the Marine Corps Reserve as a the Joint Chiefs of Staff, was illegitimately invading ci-
colonel in 1994. From 1990 to 1997, Dr. Owens was edi- vilian turf by publicly advancing opinions on foreign
tor in chief of the quarterly defense journal Strategic
policy. During the 1992 presidential campaign, Powell
Review. His articles on national security issues have ap-
peared in many well known periodicals, and he is published a piece in the New York Times warning
coeditor of the textbook Strategy and Force Planning, about the dangers of intervening in Bosnia. Not long
for which he wrote two chapters.
afterward, he followed up with an article in Foreign Af-
Naval War College Review, Autumn 2006, Vol. 59, No. 4 fairs that many criticized as an illegitimate attempt by

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OWENS 69

a senior military officer to preempt the foreign policy agenda of an incoming

president. Critics argued that Powell’s actions constituted a serious encroach-
ment by the military on civilian “turf.” They argued that it was unprecedented
for the highest-ranking officer on active duty to go public with his disagree-
ments with the president over foreign policy and the role of the military.
Closely related to the contention that the military had illegitimately ex-
panded its influence into an inappropriate area was the claim that the U.S. mili-
tar y had, in response to the
supposed lessons of Vietnam,
What does “pushing back” by the uniformed
succeeded in making military, not
military mean for civilian control of the
political, considerations para-
military?
mount in the political-military
decision-making process—dic-
tating to civilians not only how its operations would be conducted but also the
circumstances under which it would be used. This role reflected the post-Vietnam
view dominant within the military that only professional military officers could
be trusted to establish principles guiding the use of military force.
Taking its bearings from the so-called Weinberger-Powell Doctrine, a set of
rules for the use of force that had been drafted in the 1980s, the U.S. military did
everything it could to avoid what came to be known (incorrectly) as “nontradi-
tional missions”: constabulary operations required for “imperial policing”—for
example, peacekeeping and humanitarian missions. The clearest example of a
service’s resistance to a mission occurred when the Army, arguing that its proper
focus was on preparing to fight conventional wars, insisted that the plans for
U.S. interventions in Bosnia, Kosovo, and elsewhere reflect the military’s prefer-
ence for “overwhelming force.” As one contemporary source reported, the mili-
tary had a great deal of influence on the Dayton Agreement establishing an
Implementation Force (IFOR) to enforce peace in Bosnia-Herzegovina. Accord-
ing to Clinton administration officials quoted in the story, the agreement “was
carefully crafted to reflect demands from the military. . . . Rather than be ignored
. . . the military, as a price for its support, has basically gotten anything it
2
wanted.”
Finally, there were many instances of downright hostility on the part of the
military toward President Clinton, whose anti-military stance as a young man
during the Vietnam War years did not endear him to soldiers. Many interpreted
such hostility as just one more indication that the military had become too par-
tisan (Republican) and politicized.
Some observers claimed that the civil-military tensions of the 1990s were a
temporary phenomenon attributable to the perceived anti-military character of
the Clinton administration. But civil-military tensions did not disappear with

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70 NAVAL WAR COLLEGE REVIEW

the election and reelection of George W. Bush as president. If anything, civil-

military relations have become more strained as a result of clashes between
the uniformed services and Secretary of Defense Donald Rumsfeld over his
commitment to the president’s agenda of “transforming” the U.S. military—re-
shaping it from a heavy, industrial-age force designed to fight the USSR during
the Cold War to a more agile, information-age force capable of defeating future
adversaries anywhere in the world—and the planning and conduct of U.S. mili-
tary operations in Afghanistan and Iraq.
The actions on the part of some military officers to undercut Rumsfeld and
his polices in pursuit of their own goals—anti-Rumsfeld leaks to the press,
“foot-dragging,” “slow-rolling,” and generally what Peter Feaver has called
“shirking”—are not indicative of a “crisis” in American civil-military relations.
But they do suggest that civil-military relations are now unhealthy and out of
3
balance.

REVOLT OF THE GENERALS?

In April of this year, a number of retired Army and Marine generals publicly
called for the resignation of Secretary Rumsfeld. Much of the language they used
was intemperate, some downright contemptuous. For instance, Marine general
Anthony Zinni, Tommy Franks’s predecessor as commander of Central Com-
mand, described the actions of the Bush administration as ranging from “true
dereliction, negligence, and irresponsibility” to “lying, incompetence, and cor-
ruption.” He called Rumsfeld “incompetent strategically, operationally, and tac-
tically.” One has to go back to 1862 to find a senior military officer, active or
retired, condemning a civilian superior so harshly in public.
Observers of what the press called the “revolt of the generals” believed that
these retired general officers were speaking on behalf of not only themselves but
many active-duty officers as well. While there are no legal restrictions that pre-
vent retired members of the military—even recently retired members—from
criticizing public policy or the individuals responsible for it, there are some im-
portant reasons to suggest that the public denunciation of civilian authority by
even retired officers undermines healthy civil-military relations.
First of all, as Kohn has observed, retired general and flag officers are analo-
gous to the cardinals of the Roman Catholic Church. As such, the public is un-
likely to distinguish between the views of retired officers and the views of those
who are still on active duty. Second, because of their status, public criticism by
retired officers may in fact encourage active-duty officers to engage in the sort of
behavior that undermines healthy civil-military relations, signaling to them that
it is acceptable, for instance, to undercut policy by leaks to the press and other
methods of “shirking.” Finally, such actions on the part of retired officers may

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OWENS 71

convince active-duty officers that, by virtue of their uniforms, the latter are enti-
tled to “insist” that civilian authorities accept the military’s policy prescriptions.
The implied threat here is mass resignation, which, as we shall see later, is foreign
to the American military tradition.
The central charges in the case against Secretary Rumsfeld include willfully
ignoring military advice and initiating the war in Iraq with a force that was too
small, failing to adapt to the new circumstances once things began to go wrong,
failing to foresee the insurgency that now rages in that country, and ignoring the
need to prepare for postconflict stability operations.
Criticism of Rumsfeld by uniformed officers is predicated on two assump-
tions. The first is that soldiers have a right to a voice in making policy regarding
the use of the military instrument, that indeed they have the right to insist that
their views be adopted. The second is that the judgment of soldiers is inherently
superior to that of civilians when it comes to military affairs. In time of war, ci-
vilians should defer to military expertise. Both of these assumptions are ques-
tionable at best and are at odds with the principles and practice of American
civil-military relations.
First, in the American system, the uniformed military does not possess a veto
over policy. Indeed, civilians have the authority to make decisions even in what
would seem purely military affairs. In practice, as Eliot Cohen has shown, Amer-
ican civil-military relations do not actually conform to what some have dubbed
the “normal theory of civil-military relations,” which holds that civilians deter-
mine the goals of war and leave the strategy and execution of the war to the uni-
4
formed military. Cohen illustrates in Supreme Command that such successful
wartime presidents as Abraham Lincoln and Franklin Roosevelt “interfered” ex-
5
tensively with military operations—often driving their generals to distraction.
Second, when it comes to military affairs, soldiers are not necessarily more
prescient than civilian policy makers. This is confirmed by the historical record.
During the American Civil War, Abraham Lincoln constantly prodded George
McClellan, commanding general of the largest Union force during the Civil War,
the Army of the Potomac, to take the offensive in Virginia in 1862. McClellan
just as constantly whined that he had insufficient troops. During World War II,
notwithstanding the image of civil-military comity, there were many differences
between Franklin Roosevelt and his military advisers. Gen. George Marshall,
chief of staff of the U.S. Army and the greatest soldier-statesman since Washing-
ton, opposed arms shipments to Great Britain in 1940 and argued for a
cross-channel invasion before the United States was ready. History has vindi-
cated Lincoln and Roosevelt.
Many are inclined to blame the U.S. defeat in Vietnam on civilians. But the
American operational approach in Vietnam was the creature of the uniformed

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72 NAVAL WAR COLLEGE REVIEW

military. The generally accepted view today is that the operational strategy of
Gen. William Westmoreland (commanding the U.S. Military Assistance Com-
mand, Vietnam) emphasizing attrition of the People’s Army of Vietnam forces
in a “war of the big battalions”—a concept producing sweeps through remote
jungle areas in an effort to fix and destroy the enemy with superior firepower—
was counterproductive. By the time Westmoreland’s successor could adopt a
6
more fruitful approach, it was too late.
During the planning for Operation DESERT STORM in late 1990 and early
1991, Gen. Norman Schwarzkopf, commander of U.S. Central Command, pre-
sented a plan calling for a frontal assault against Iraqi positions in southern Ku-
wait, followed by a drive toward Kuwait City. The problem was that this plan
would have been unlikely to achieve the foremost military objective of the
ground war—the destruction of the three divisions of Saddam’s Republican
Guard. The civilian leadership rejected the early war plan presented by
CentCom and ordered a return to the drawing board. The revised plan was far
7
more imaginative and effective.

“PUSHING BACK” AND CIVIL-MILITARY RELATIONS

The cornerstone of U.S. civil-military relations is civilian control of the military,
a principle that goes back to the American Revolution and the precedent estab-
lished by George Washington, who willingly subordinated himself and his army
to civilian authority. “Washington’s willing subordination, of himself and the
army he commanded, to civilian authority established the essential tenet of that
service’s professional ethos. His extraordinary understanding of the fundamen-
tal importance of civil preeminence allowed a professional military force to be-
gin to flourish in a democratic society. All of our military services are heir to that
8
legacy.”
The very public attack on Rumsfeld by retired officers flies in the face of the
American tradition of civilian control of the military. Should active-duty and
retired officers of the Army and Navy in 1941 have debated publicly the Lend-
Lease program or the occupation of Iceland? Should Douglas MacArthur have
resigned over the Europe-first strategy? Should generals in 1861 have discussed
in public their opinions of Lincoln’s plan to reprovision Fort Sumter, aired their
views regarding the right of the South to secede from the Union, or argued the
pros and cons of issuing the Emancipation Proclamation?
In support of their actions, many of Rumsfeld’s critics have invoked a very
important book by H. R. McMaster, Dereliction of Duty: Lyndon Johnson, Robert
McNamara, the Joint Chiefs of Staff, and the Lies That Led to Vietnam, the subject
of which is the failure of the Joint Chiefs to challenge Defense Secretary Robert
9
McNamara forcefully enough during the Vietnam War. Many serving officers

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OWENS 73

believe the book effectively makes the case that the Joint Chiefs of Staff should
have more openly voiced their opposition to the Johnson administration’s strat-
egy of gradualism and then resigned rather than carry out the policy.
But as Kohn—who was McMaster’s academic adviser for the dissertation that
became Dereliction of Duty—has observed, the book
neither says nor implies that the chiefs should have obstructed American policy in
Vietnam in any other way than by presenting their views frankly and forcefully to
their civilian superiors, and speaking honestly to Congress when asked for their
views. It neither states nor suggests that the chiefs should have opposed President
Lyndon Johnson’s orders and policies by leaks, public statements, or by resignation,
unless an officer personally and professionally could not stand, morally and ethically,
10
to carry out the chosen policy.

This serious misreading of Dereliction of Duty has dangerously reinforced the

increasingly widespread belief among officers that they should be advocates of
particular policies rather than contenting themselves with their traditional ad-
visory role.
Kohn writes that a survey of officer and civilian attitudes and opinions under-
taken by the Triangle Institute for Security Studies in 1998–99 discovered that
“many officers believe that they have the duty to force their own views on civil-
ian decision makers when the United States is contemplating committing Amer-
ican forces abroad.” When “asked
Civil-military tensions did not disappear with whether military leaders should
the election and reelection of George W. Bush be neutral, advise, advocate, or in-
as president. sist on having their way in the de-
cision process” to use military
force, 50 percent or more of the
up-and-coming active-duty officers answered “insist,” on the following issues:
“setting rules of engagement, ensuring that clear political and military goals ex-
ist, developing an ‘exit strategy,’” and “deciding what kinds of military units will
be used to accomplish all tasks.” In the context of the questionnaire, “insist” defi-
nitely implied that officers should try to compel acceptance of the military’s rec-
11
ommendations.
Ironically, some journalists who normally would reject the idea that military
officers should “insist” that elected officials or their constitutional appointees
adopt the military position seem to be all for it when it comes to the Bush admin-
istration and Donald Rumsfeld. For instance, in a March 2005 column for the
Washington Post handicapping the field of possible successors to Air Force general
Richard B. Myers as chairman of the Joint Chiefs of Staff, David Ignatius, citing
Dereliction of Duty, raised a central question of U.S. civil-military relations: To

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74 NAVAL WAR COLLEGE REVIEW

what extent should the uniformed military “push back” against the policies of a
president and his secretary of defense if the soldiers believe the policies are
12
wrong? Ignatius wrote that “when you ask military officers who should get the
job, the first thing many say is that the military needs someone who can stand up
to . . . Rumsfeld. The tension between Rumsfeld and the uniformed military,” he
continued, “has been an open secret in Washington these past four years. It was
compounded by the Iraq war, but it began almost from the moment Rumsfeld
took over at the Pentagon. The grumbling about his leadership partly reflected
the military’s resistance to change and its reluctance to challenge a brilliant but
headstrong civilian leader. But in Iraq, Rumsfeld has pushed the services—espe-
cially the Army—near the breaking point.”
“The military is right,” concluded Ignatius. “The next chairman of the JCS
must be someone who can push back.” But what does “pushing back” by the uni-
formed military mean for civilian control of the military?

LINCOLN AND MCCLELLAN: A CASE OF “PUSHING BACK”

Perhaps the clearest example of an American general who “pushed back” against
civilian leadership because he disapproved of administration policy is Maj. Gen.
George B. McClellan. Military historians tend to treat McClellan as a first-rate
organizer, equipper, and trainer but an incompetent general who was constantly
outfought and outgeneraled by his Confederate counterpart, Robert E. Lee. That
may be true, but there is more to the story. McClellan and many of his favored
subordinates disagreed with many of Lincoln’s policies and indeed may have at-
tempted to sabotage them. McClellan pursued the war he wanted to fight—one
that would end in a negotiated peace—rather than the one his commander in
chief wanted him to fight. The behavior of McClellan and his subordinates ulti-
mately led Lincoln to worry that his decision to issue the Emancipation Procla-
mation might trigger a military coup.
There is perhaps no more remarkable document in the annals of American
civil-military relations than the letter McClellan gave to Lincoln when the presi-
dent visited the Army of the Potomac at Harrison’s Landing on the James River
in July 1862. McClellan, who had been within the sound of Richmond’s church
bells only two weeks earlier, had been driven back by Lee in a series of battles
known as the Seven Days. McClellan’s letter went far beyond the description of
the state of military affairs that McClellan had led Lincoln to expect. Instead,
McClellan argued against confiscation of rebel property and interference with
the institution of slavery. “A system of policy thus constitutional and conserva-
tive, and pervaded by the influences of Christianity and freedom, would receive
the support of almost all truly loyal men, would deeply impress the rebel masses
and all foreign nations, and it might be humbly hoped that it would commend

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OWENS 75

itself to the favor of the Almighty.” McClellan continued that victory was possi-
ble only if the president was pledged to such a policy. “A declaration of radical
views, especially upon slavery, will rapidly disintegrate our present Armies,”
13
making further recruitment “almost hopeless.”
Advice from a general, however inappropriate, is one thing. But for a general
to act on his own without consulting his commander in chief smacks of insubor-
dination. In early June 1862, while the Army of the Potomac was still moving to-
ward Richmond, McClellan had designated his aide, Col. Thomas Key, to
represent him in prisoner-of-war negotiations with the Confederates, repre-
sented by Howell Cobb. But McClellan had gone far beyond the technical issue
at hand, authorizing Key to investigate the possibility of peace between the sec-
tions. In response to Cobb’s assertion that Southern rights could be protected
only by independence, Key replied that “the President, the army, and the people”
had no thought of subjugating the South but only desired to uphold the Consti-
tution and enforce the laws equally in the states. McClellan apparently thought it
was part of his duty to negotiate with the enemy on the terms for ending hostili-
ties and to explain to that enemy the policies and objectives of his commander in
chief, without letting the latter know that he was doing so.
McClellan did not try to hide his efforts at peace negotiations from Lincoln.
Indeed, he filed Key’s report with Secretary of War Edwin M. Stanton and asked
him to give it to the president. Stanton acceded to McClellan’s request but re-
minded him that “it is not deemed proper for officers bearing flags of truce in re-
spect to the exchange of prisoners to hold any conference with the rebel officers
14
upon the general subject of the existing contest.”
As for his own proper responsibilities, McClellan’s generalship was character-
ized by a notable lack of aggressiveness. He was accused of tarrying when Gen.
John Pope’s Army of Virginia was being handled very roughly by Lee at Second
Manassas. Indeed, one of Pope’s corps commanders, Fitz-John Porter, clearly
serving as a surrogate for McClellan, was court-martialed for alleged failure to
come to Pope’s aid quickly enough. A month later, McClellan was accused of let-
ting Lee slip away to fight another day after Antietam; soon thereafter, Lincoln
relieved him.
I have come to believe that McClellan’s lack of aggressiveness was the result
not of incompetence but of his refusal to fight the war Lincoln wanted him to
fight. He disagreed with Lincoln’s war aims and, in the words of Peter Feaver,
15
“shirked” by “dragging his feet.” At the same time, McClellan and some of his
officers did not hide their disdain for Lincoln and Stanton and often expressed
this disdain in intemperate language. McClellan wrote his wife, “I have com-
menced receiving letters from the North urging me to march on Washington &
16
assume the Govt!!” He also wrote her about the possibility of a “coup,” after

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76 NAVAL WAR COLLEGE REVIEW

which “everything will be changed in this country so far as we are concerned &
17
my enemies will be at my feet.” He did not limit the expression of such senti-
ments to private correspondence with his wife. Lincoln and his cabinet were
aware of the rumors that McClellan intended to put “his sword across the gov-
ernment’s policy.” McClellan’s quartermaster general, Montgomery Meigs, ex-
pressed concern about “officers of rank” in the Army of the Potomac who spoke
openly of “a march on Washington to ‘clear out those fellows.’” 18
Such loose talk did not help McClellan or his army in the eyes of Lincoln, who
understood that he must take action in order to remind the army of his constitu-
tional role. He did by disciplining Maj. John Key, aide de camp to the general in
chief, Henry Halleck, and brother of McClellan’s aide, the aforementioned Col.
Thomas Key. Lincoln wrote Major Key of learning that he had said in response to
a query from a brother officer as to “why . . . the rebel army [was not] bagged im-
mediately after the battle near Sharpsburg [Antietam],” that “that is not the
game. The object is that neither army shall get much advantage of the other; that
both shall be kept in the field till they are exhausted, when we will make a com-
19
promise and save slavery.”
Lincoln dismissed Key from the service, despite pleas for leniency (and the
fact that Key’s son had been killed at Perryville), writing that “it is wholly inad-
missible for any gentleman holding a military commission from the United
States to utter such sentiments as Major Key is within [i.e., by an enclosure]
proved to have done.” He remarked to John Hay “that if there was a ‘game’ ever
among Union men, to have our army not take an advantage of the enemy when it
could, it was his object to break up that game.” At last recognizing the danger of
such loose talk on the part of his officers and soldiers, McClellan issued a general
order calling for the subordination of the military to civil authority: “The rem-
edy for political errors, if any are committed, is to be found only in the action of
20
the people at the polls.”
On the surface, criticism of Bush administration policy by retired officers is
not nearly as serious as the actions of McClellan, whose “foot-dragging” and
“slow-rolling” undermined the Union war effort during the War of the Rebel-
lion. Nonetheless, the threat to healthy civil-military relations posed by the re-
cent, seemingly coordinated public attack by retired generals on Secretary
Rumsfeld and Bush’s Iraq policy is serious, reinforcing as it does the illegitimate
belief among active duty officers that they have the right to “insist” on their pre-
ferred options and that they have a right to “push back” against civilian
authority.
But the fact is that the soldier’s view, no matter how experienced in military
affairs the soldier may be, is still restricted to the conduct of operations and mili-
tary strategy, and even here, as Cohen shows, the civilian leadership still reserves

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OWENS 77

the right to “interfere.” Civilian control of the military means at a minimum that
it is the role of the statesman to take the broader view, deciding when political
considerations take precedence over even the most pressing military matters.
The soldier is a fighter and an adviser, not a policy maker. In the American sys-
tem, only the people at large—not the military—are permitted to punish an ad-
ministration for even “grievous errors” in the conduct of war.

RUMSFELD VS. HIS CRITICS: THE RECORD

While the military must make its point strongly in the councils of government, it
will not, as instances adduced above have shown, always be correct when it comes
to policy recommendations. In the case of Rumsfeld, it seems clear that although
he has made some critical mistakes, no one did better when it came to predicting
what would transpire. Did Rumsfeld foresee the insurgency and the shift from
conventional to guerrilla war? No, but neither did his critics in the uniformed
services.
Indeed, Tom Ricks reported in the 25 December 2004 Washington Post that
Maj. Isaiah Wilson III, who served as an official historian of the campaign and
later as a war planner in Iraq, placed the blame for failing to foresee the insur-
21
gency squarely on the Army. Ricks wrote:
Many in the Army have blamed Defense Secretary Donald H. Rumsfeld and other
top Pentagon civilians for the unexpectedly difficult occupation of Iraq, but Wilson
reserves his toughest criticism for Army commanders who, he concludes, failed to
grasp the strategic situation in Iraq and so did not plan properly for victory. He con-
cludes that those who planned the war suffered from “stunted learning and a reluc-
tance to adapt.”
Army commanders still misunderstand the strategic problem they face and therefore
are still pursuing a flawed approach, writes Wilson, who is scheduled to teach at the
U.S. Military Academy at West Point next year. “Plainly stated, the ‘western coali-
tion’ failed, and continues to fail, to see Operation IRAQI FREEDOM in its fullness,”
he asserts.

“Reluctance in even defining the situation . . . is perhaps the most telling indicator of
a collective cognitive dissonance on part of the U.S. Army to recognize a war of re-
bellion, a people’s war, even when they were fighting it,” he comments.

What about the charge that Rumsfeld’s Pentagon shortchanged the troops in
Iraq by failing to provide them with armored “humvees”?* A review of Army bud-
get submissions makes it clear that the service’s priority, as is usually the case with
the uniformed services, was to acquire “big ticket” items. It was only after the

* The “humvee”—as the HMMWV, or High-Mobility Multipurpose Wheeled Vehicle, or M998

truck, in some eleven variants, is familiarly known—replaced the jeep in the U.S. military.

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78 NAVAL WAR COLLEGE REVIEW

insurgency and the “improvised explosive device” threat became apparent that the
Army began to push for supplemental spending to “up-armor” the utility vehicles.
Also, while it is true that Rumsfeld downplayed the need to prepare for
postconflict stability operations, it is also the case that in doing so he was merely
ratifying the preferences of the uniformed military. When it comes to
postconflict stability operations, the real villain is the Weinberger-Powell Doc-
trine, a set of principles long internalized by the U.S. military that emphasizes
the requirement for an “exit strategy.” But if generals are thinking about an exit
strategy they are not thinking about “war termination”—how to convert mili-
tary success into political success. This cultural aversion to conducting stability
operations is reflected by the fact that operational planning for Operation IRAQI
FREEDOM took eighteen months, while planning for postwar stabilization began
22
(halfheartedly) only a couple of months before the invasion.
In retrospect, it is easy to criticize Rumsfeld for pushing the CentCom com-
mander, General Franks, to develop a plan based on a smaller force than the one
called for in earlier plans, as well as for his interference with the Time-Phased
Force and Deployment List (TPFDL) that lays out the schedule of forces deploy-
ing to a theater of war. But hind-
sight is always twenty/twenty,
Critics argued that General Powell’s actions
permitting us to judge another’s
constituted a serious encroachment by the
actions on the basis of what we
military on civilian “turf.”
know now, not what we knew
then. Thus the consequences of
the chosen path—to attack earlier with a smaller force—are visible to us in retro-
spect, while the very real risks associated with an alternative option—such as to
take the time to build up a larger force, perhaps losing the opportunity to
achieve surprise—remain provisional.
The debate over the size of the invasion force must also be understood in the
context of civil-military relations. The fact is that Rumsfeld believed that civilian
control of the military had eroded during the Clinton administration, that if the
Army did not want to do something—as in the Balkans in the 1990s—it would
simply overstate the force requirements. It is almost as if the standard Army re-
sponse was: “The answer is 350,000 soldiers. What’s the question?” Accordingly,
Rumsfeld was inclined to interpret the Army’s call for a larger force to invade
Iraq as just one more example of what he perceived as foot dragging. In retro-
spect, Rumsfeld’s decision not to deploy the 1st Cavalry Division was a mistake,
but again, he had come to believe that the TPFDL, like the “two major theater
war” planning metric, had become little more than a bureaucratic tool that the
services used to protect their shares of the defense budget.

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OWENS 79

It is clear that Rumsfeld is guilty of errors of judgment regarding both trans-

formation and the conduct of the Iraq war. With regard to the former, his “busi-
ness” approach to transformation is potentially risky. Rumsfeld’s approach
stresses an economic concept of efficiency at the expense of military and political
effectiveness. War is far more than a mere targeting drill: as the Iraq conflict has
demonstrated, destruction of a “target set” may mean military success but does
not translate automatically into achievement of the political goals for which the
war was fought in the first place. But the U.S. military does need to transform it-
self, and, as suggested above, the actual practice of transformation in the
Rumsfeld Pentagon has been flexible and adaptive, not doctrinaire.
With regard to the Iraq war, Rumsfeld’s original position was much more
optimistic than the facts on the ground have warranted, but he has acknowl-
edged changes in the character of the war and adapted to them. In addition,
Rumsfeld’s critics have been no more prescient than he. We should not be sur-
prised. As Clausewitz reminds us, war takes place in the realm of chance and
uncertainty.

Uniformed officers have an obligation to stand up to civilian leaders if they think

a policy is flawed. They must convey their concerns to civilian policy makers
forcefully and truthfully. If they believe the door is closed to them at the Penta-
gon or the White House, they also have access to Congress. But the American
tradition of civil-military relations requires that they not engage in public de-
bate over matters of foreign policy, including the decision to go to war. More-
over, once a policy decision is made, soldiers are obligated to carry it out to the
best of their ability, whether their advice is heeded or not. The idea that a general
or admiral—including those on the retired list—should publicly attack govern-
ment policy and its civilian authors, especially in time of war, is dangerous.

NOTES

1. Richard H. Kohn, “The Erosion of Civilian (Cambridge, Mass.: Harvard Univ. Press,
Control of the Military in the United States 2005). In his treatment of civil-military rela-
Today,” Naval War College Review 50, no. 3 tions, Feaver employs “agency theory,” which
(Summer 2002), p. 10, available at www.nwc was originally developed by economists to
.navy.mil/press/Review/2002/summer/art1 analyze the relations between a principal and
-su2.htm. an agent to whom he has delegated authority.
2. Warren Strobel, “This Time Clinton Is Set to The problem that agency theory seeks to ana-
Heed Advice from Military,” Washington lyze is this: given different incentives, how
Times, 1 December 1995, p. 1. does a principal ensure that the agent is doing
what the principal wants him to do? Is the
3. Peter D. Feaver, Armed Servants: Agency, agent “working” or “shirking”?
Oversight, and Civil-Military Relations

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80 NAVAL WAR COLLEGE REVIEW

The major question for the principal is the 11. Ole Holsti, “Of Chasms and Convergences:
extent to which he will monitor the agent. Attitudes and Beliefs of Civilians and Military
Will monitoring be intrusive or nonintrusive? Elites at the Start of a New Millennium,” in
This decision is affected by the cost of moni- Soldiers and Civilians: The Civil-Military Gap
toring. The higher the cost of monitoring, the and American National Security, eds. Peter D.
less intrusive the monitoring is likely to be. Feaver and Richard H. Kohn (Cambridge,
The agent’s incentives for working or shirk- Mass.: MIT Press, 2001), pp. 84, 489, and
ing are affected by the likelihood that his tables 1.27, 1.28.
shirking will be detected by the principal and 12. David Ignatius, “Rumsfeld and the Generals,”
that he will then be punished for it. The less Washington Post, 30 March 2005, p. A15,
intrusive the principal’s monitoring, the less available at www.washingtonpost.com/
likely the agent’s shirking will be detected. wp-dyn/articles/A11309-2005Mar29.html.
In applying agency theory to civil-military re- 13. McClellan to Lincoln, 7 July 1862, in Stephen
lations, Feaver acknowledges the unsuitability B. Sears, ed., The Civil War Papers of George
of the term “shirking” when describing the B. McClellan, 1860–1865 (New York: Ticknor
action of the military agent when it pursues and Fields, 1989), p. 344, and Official Records
its own preference rather than those of the ci- of the Rebellion [hereafter OR], ser. 1, vol. XI,
vilian principal. But he contends that the al- pt. 1, p. 73.
ternatives are even less suitable. Feaver argues
that shirking by the military takes many 14. For coverage and discussion of this entire is-
forms; the most obvious form of military sue, see Joseph Cullen, The Peninsula Cam-
shirking is disobedience, but it also includes paign of 1862: McClellan and Lee Struggle for
foot dragging and leaks to the press designed Richmond (Harrisburg, Pa.: Stackpole Books,
to undercut policy or individual policy 1973), pp. 69–76, and OR, ser. 1, vol. XI, pp.
makers. 1052–961.

4. The origin of this understanding of civil- 15. Feaver, Armed Servants.

military relations can be traced to Samuel 16. McClellan to Mary Ellen McClellan, 11 July
Huntington, The Soldier and the State: The 1862, in Sears, ed., Civil War Papers, p. 351.
Theory and Politics of Civil-Military Relations
17. McClellan to Mary Ellen McClellan, 10 Au-
(Cambridge, Mass.: Belknap, 1957).
gust 1862, in ibid., p. 390.
5. Eliot Cohen, Supreme Command: Soldiers,
18. “General M. C. Meigs on the Conduct of the
Statesmen, and Leadership in Wartime (New
Civil War,” American Historical Review 26
York: Free Press, 2002).
(1920–21), p. 294.
6. Lewis Sorley, A Better War: The Unexamined
19. “Record of Dismissal of John J. Key, Sep. 26–
Victories and Final Tragedy of America’s Last
27, 1862,” in Collected Works of Lincoln, ed.
Years in Vietnam (New York: HBJ/Harvest
Roy Basler (New Brunswick, N.J.: Rutgers
Books, 2000).
Univ. Press, 1953), vol. 5, pp. 442–43.
7. See Michael Gordon and Bernard Trainor,
20. OR, ser. I, vol. 19, pt. 2, pp. 295–96.
The Generals’ War: The Inside Story of the
Conflict in the Gulf (Boston: Little, Brown, 21. Thomas E. Ricks, “Army Historian Cites Lack
1995). of Postwar Plan: Major Calls Effort in Iraq
‘Mediocre,’” Washington Post, 25 December
8. William Calhoun, “Washington at Newburg,”
2004, p. A01, available at www.washingtonpost
Claremont Institute, www.claremont.org/
.com/wp-dyn/articles/A24891-2004Dec24.html.
writings/050315calhoun.html, 15 March
2005. See also U.S. Army Dept., The Army, Field 22. On Rumsfeld and the plans for the Iraq war,
Manual 1 (Washington, D.C.: June 2005). see Gordon and Trainor, Cobra II: The Inside
Story of the Invasion and Occupation of Iraq
9. H. R. McMaster, Dereliction of Duty: Lyndon
(New York: Pantheon, 2006). See also Thomas
Johnson, Robert McNamara, the Joint Chiefs of
Ricks, Fiasco: The American Military Adventure
Staff, and the Lies That Led to Vietnam (New
in Iraq (New York: Penguin Books, 2006).
York: HarperCollins, 1997).
10. Kohn, “Erosion of Civilian Control,” p. 16.

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