Table Of Content2007 AF White Paper 10/15/97 2:22 PM Page 94
C–130 (top) with
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Special: The Air Force White Paper U.
Global Presence
By S H E I L A E. W I D N A L L and R O N A L D R. F O G L E M A N
EDITOR’S NOTE: This white paper was released by the Air Force in late February. Global Presence follows an estab-
lished custom whereby the services routinely issue papers that outline a conceptual framework for rationalizing missions,
developing doctrine, etc. Such strategic documents have appeared with some frequency since the end of the Cold War and
in the wake of the Persian Gulf War. The Army brought out Land Warfare in the 21st Century while the strategic vision
of the Navy-Marine Corps team was presented in a 1992 paper entitled...From the Sea: Preparing the Naval Service
for the 21st Century and has recently been reformulated in Forward...From the Sea. Now an earlier Air Force paper,
Global Reach-Global Power, is being superseded byGlobal Presence.
A
s America approaches the next core responsibility in terms of how America’s
century, we face both an uncer- military forces actually project power.
tain world and a promising fu- At the foundation of this approach is
ture. Our challenge, as a service power projection. Power projection is a means
and as a Nation, is to sustain that promise to influence actors or affect situations or
and secure the future. events in America’s national interest. It has
In the years to come, America’s military two components: warfighting and presence.
will continue to play a pivotal role. That role Warfighting is the direct application of mili-
will be a stabilizing one, founded on the tary force to compel an adversary. Presence is
shared principles and traditions of all the the posturing of military capability, includ-
services. Increased cooperation is the corner- ing nonbelligerent applications, and/or the
stone for success. leveraging of information to deter or compel
The primary responsibility of America’s an actor or affect a situation. A sound na-
military is to deter potential adversaries or tional military strategy depends on coherent
fight and win wars decisively. To improve the warfighting and presence strategies.
way we do business, we must reconsider this
94 JFQ / Spring 1995
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1995 2. REPORT TYPE 00-00-1995 to 00-00-1995
4. TITLE AND SUBTITLE 5a. CONTRACT NUMBER
Global Presence
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National Defense University,Institute for National Strategic Studies,Fort REPORT NUMBER
Lesley J. McNair,Washington,DC,20319
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2007 AF White Paper 10/15/97 2:22 PM Page 95
Widnall and Fogleman
Changes in the international security our Nation’s continued commitment to their
environment, advances in technology, and security while responding to the reality of
reductions in America’s military force struc- the decreasing threat to America’s national
ture require a fresh consideration of Amer- existence. n
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ica’s presence strategy. Today, the global international system
i
This document provides a recon- has become a more diverse panorama of po- t
a
ceptualization of presence. It expands tradi- litical, military, and economic concerns con-
t
tional notions of presence to correspond with fronting the United States. Consequently, it n
the emerging international security picture is more difficult to achieve consensus on e
and to match current and future applications. what Americans consider “vital” national in- m
terests. Despite this, America’s military forces u
A New Approach
are involved in more operations of greater c
America’s approach to evolving national o
duration than at any time in the past 20
security concerns has changed over the years D
years; and these operations have been con-
to meet the needs of a shifting geopolitical
ducted with 25 percent of the total force and
environment.
40 percent fewer forward deployed forces
During the Cold War, America’s vital na-
than the services possessed in 1989.
tional interests seemed to be more easily de-
In the face of increasing demands on
fined. Our Nation faced a monolithic threat
U.S. military forces, smaller force structures,
to its national security and our political and
and shrinking defense budgets, we can no
military leaders were able to contain and
longer afford to physically deploy forces in
counter that threat with effective strategies
every region of concern.
for ensuring America’s security. Forward de-
Concurrent with changes in the interna-
fense was a key component of our contain-
tional security environment are significant
ment strategy and amounted to what today
advances in technology, most notably infor-
is called presence.
mation technologies. The ability to create,
The thrust of forward defense was to
disseminate, access, and manipulate informa-
deter potential aggressors, and if that failed,
tion for one’s own ends and to control infor-
to engage those aggressors’ forces close to
mation available to competitors or adversaries
their borders, halting and repelling the ag-
produces a potential for decisive advantage.
gression. As such, presence equated to and
Much as the introduction of the airplane
was assured by bipolar alliances, heavy over-
moved us into the three-dimensional battle-
seas troop commitments, frequent political
field, information technologies lead us to
and military-to-military interaction with
consider the potential of operations in a four-
America’s allies, and the continual courting
dimensional, virtual battlespace. This bat-
of “on-the-fence” nations. In short, part of
tlespace is not defined in terms of traditional,
America’s Cold War strategy was “being
centralized, geopolitical boundaries, but in
there.” It was a strategy most Americans un-
terms of a decentralized, global web of net-
derstood.
works. As a result, we must examine new
As the 1980s ended and the Cold War
methods of characterizing the threat—includ-
subsided, the basis for the traditional defini-
ing the use of technology-based analysis—
tion of presence began to dissolve. America
and determine appropriate responses.
moved from the Cold War’s bipolar arrange-
To use an analogy, during the Cold War,
ment toward what was perceived to be a
America was like a cop permanently guarding
new, less threatening political environment.
the door of every bank around the globe.
As forward defense lost its rationale, forward
Changes in the security environment cou-
presence and overseas presence emerged. The
pled with technological improvements and
goal of each was to assure America’s allies of
force reductions altered America’s need to
continue in this role. Hence, America re-
placed “the cop on the beat” with “video
The Honorable Sheila E. Widnall is Secretary of
monitoring and alarm systems” linked to
the Air Force and formerly was Associate Provost
joint military capabilities that can be brought
at the Massachusetts Institute of Technology;
to bear wherever and whenever necessary.
General Ronald R. Fogleman is Chief of Staff, U.S.
This monitoring and alarm network consists
Air Force, and previously served as Commander in
Chief, U.S. Transportation Command.
Spring 1995 / JFQ 95
2007 AF White Paper 10/15/97 2:22 PM Page 96
GLOBAL PRESENCE
of space-based and air-breathing platform U.S. efforts to persuade Israel not to re-
sensors and other information gathering sys- spond to Iraqi Scud attacks during the Per-
tems. In most instances, information, com- sian Gulf War can help illustrate these con-
n bined with forces that can rapidly respond ditions. America’s objective was to preserve
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with the right mix of capabilities, can the political and military coalition opposing
i
t achieve U.S. goals. On occasion, information Iraq. To accomplish this objective, the
a
alone may be enough to attain U.S. objec- United States had to satisfy the four condi-
t
n tives. Of course, in some regions of the world tions mentioned above.
e a physical presence is imperative; however, First, to ensure Israel understood and
m there may be circumstances when such a appreciated American interests, which in-
u presence is counterproductive. In instances cluded Israeli security, the Deputy Secretary
c where a physical presence is not preferred, of State and Under Secretary of Defense for
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information capabilities provide America the Policy delivered personal assurances from
D
option to visit the “bank” as often as it the President of the United States to the Is-
wishes to check the integrity of the system. raeli Prime Minister. Thereafter, the Depart-
In an environment influenced by so ment of Defense established a secure com-
many variables, how should America best munication link with the Israeli Ministry of
pursue the continuing need for presence? Defense to enable immediate and frequent
One way is through global presence. contact between U.S. and Israeli officials.
Global presence expands the definition Second, to ensure Israel understood
of presence to include the advantages of America intended to support those interests,
physical and virtual means. Global presence the President ordered the immediate transfer
considers the full range of potential activities of two Patriot air defense missile batteries to
from the physical interaction of military Israel and the training of Israeli crews for
forces to the virtual interaction achieved with their operation.
America’s information-based capabilities. Third, to assure Israel that America could
monitor and assess activities throughout the
Fundamentals
region, the United States provided near-real-
Three tenets are key to moving beyond
time warning of Iraqi Scud missile attacks on
traditional conceptions of presence:
Israel. Near-real-time warning offered the Is-
t all military forces can exert presence
raeli populace as much as five minutes to
t forces have unique attributes that affect
take shelter before missile impact.
the scope and quality of the presence they exert
Fourth, to assure the Israeli leadership
and complement each other when appropriately
that America had sufficient force to achieve
applied
t technological advances are enhancing its objectives, the President offered four ad-
the contributions of military forces to presence ditional Patriot batteries to be operated by
missions. U.S. troops. Likewise, U.S. Central Com-
mand devoted a substantial amount of its
All Forces Can Exert Presence
air, space, and special operations assets to
The suitability of forces to exert pres-
combat the Scud threat.
ence is conditional. The task is to match the
In this instance, America succeeded by
right combination of capabilities to achieve
ensuring U.S. objectives were clearly under-
the desired objective. For forces to exert
stood, by demonstrating U.S. commitment
presence, the actors we wish to influence
to Israel’s security, and by coordinating a
must understand that we:
common response to the crisis. Space-based
t have national interests involved assets aided this response. These space-
t have the political will to support or de-
based assets were part of the process that
fend those interests
included all four conditions for exerting
t can monitor and assess their actions ac-
presence. These four conditions are endur-
cordingly
t have sufficient force to achieve our objec- ing requirements, guiding America’s politi-
tives. cal and military leaders when considering
presence operations. Because every opera-
Without fulfilling these conditions, mili-
tion is fundamentally different, political
tary forces are likely not to influence an actor.
96 JFQ / Spring 1995
2007 AF White Paper 10/15/97 2:22 PM Page 97
Widnall and Fogleman
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B–52, and B–1
bombers. n
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and military lead- The possibility of a resurgent Iraqi threat
Air Force eforsrc sehs owuiltdh cthhoe oaste- pitoys eadn da sAemrioeursic daa’sn ginert etroe stthse irne gtihoen ’sP estrasbiainl-
U.S. tributes each case Gulf. This required more than just a physical
C–5A transport. warrants. presence, it required a global presence, com-
bined with diplomatic initiatives, to contain
Forces Emphasize Different Attributes
Iraqi adventurism. When Iraq mobilized a
America’s military forces emphasize differ-
significant ground force near Kuwait’s bor-
ent qualities based on the medium in which
der, the United States quickly responded
they operate. These attributes magnify a the-
with Operation Vigilant Warrior. On short
ater commander’s ability to exert presence in
notice, air and ground forces deployed from
accordance with the principles of war. They
the United States to Saudi Arabia and Kuwait
also enable theater commanders to develop al-
to deter incursions into these territories.
ternative joint force packages. These attributes
Likewise, naval forces moved from the
include:
Mediterranean Sea and Indian Ocean into
t responsiveness—the ability to arrive the Persian Gulf. Space forces and other in-
quickly where needed
formation-based capabilities enabled air,
t persistence—the ability to maintain or
ground, and naval force operations and pro-
adjust operational tempos over an extended pe-
vided American, coalition, and other world
riod of time
t flexibility (versatility)—the ability to con- leaders a window through which they could
monitor, assess, and, with a variety of
figure forces for a particular set of conditions
t survivability—the ability to limit risks means, attempt to manipulate behaviors.
when employing forces Concurrently, global media coverage of
t economy—the ability to efficiently allo- America’s military mobilization and deploy-
cate resources required to deploy and employ ca- ment presented Saddam Hussein and the
pabilities. world with an unmistakable statement of
Employing the proper alternative joint U.S. intentions and resolve. In this case, U.S.
force package depends on numerous factors, efforts capitalized upon the complementary
beginning with an assessment of national se- attributes of air, ground, sea, and space
curity objectives. An example of this can be
drawn from the situation in Kuwait in 1994.
Spring 1995 / JFQ 97
2007 AF White Paper 10/15/97 2:22 PM Page 98
GLOBAL PRESENCE
F–15s and F–16s
in formation.
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forces to successfully secure U.S. objectives. in space-based and air-breathing platform
In the future, when demonstrating similar sensors and other information-based systems
resolve, our Nation’s leaders will benefit deployed around the globe. These forces are
from forces increasingly influenced by tech- an increasingly vital component of national
nological innovations. policy implementation. For example, these
capabilities were critically important
Technological Innovations
during 1994, when determining and execut-
Technological advances enhance the
ing appropriate responses to events in Korea,
role of all military forces in exerting pres-
Iraq, Bosnia, Somalia, Rwanda, and Haiti.
ence. Improvements in three specific areas
Situational awareness gives America an
enable forces to influence with less political
ability to anticipate crises and prepare ap-
and military risk.
propriate responses to them. Improvements
t Situational Awareness. Advances in infor- in space-based and air-breathing platform
mation-based technologies allow military forces
sensors and information-based systems in
to monitor and assess most global conditions
the coming years will steadily increase the
rapidly and efficiently.
situational awareness of military leaders and
t Strategic Agility. Improvements in trans-
military forces at all echelons. Today, situa-
port technologies enable rapid responses with a
tional awareness improves our ability to gen-
variety of military forces to distant locations.
t Lethality. Enhancements in weapon sys- erate military options before crises erupt.
tem technologies make it possible to achieve de- Once the use of military capabilities is neces-
sired effects more quickly and at less cost. sary, the full range of recent technological
advances comes into play.
Situational awareness results from ad-
Improvements in transport technologies
vances in information-based technologies
enable the United States to respond rapidly
that allow military forces to monitor and as-
to national security concerns anywhere in
sess global conditions rapidly and efficiently.
the world with a variety of military capabili-
This is more than hitching a ride on the in-
ties. This is strategic agility. With strategic
formation highway. Political and military
leaders have come to depend upon advances
98 JFQ / Spring 1995
2007 AF White Paper 10/15/97 2:22 PM Page 99
Widnall and Fogleman
agility, U.S. military forces can operate un- Like warfighting, presence is a team ef-
constrained by geographic barriers and can fort. Just as theater commanders define their
reach 100 percent of the world’s population. warfighting requirements, they have the re-
We gain strategic agility with such national sponsibility to determine presence require- n
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assets as our air mobility fleet, that is, our ments as well. As such, they must retain ac-
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airlift and air refueling forces. When these cess to the military means that enable them t
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assets are combined with Army civil affairs to obtain the balance of forces and capabili-
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units, for instance, air mobility becomes a ties needed to exert presence. Global pres- n
means for demonstrating U.S. benevolence. ence facilitates that process. e
When combined with the 82d Airborne, air Global presence acknowledges that all m
mobility becomes a means for demonstrat- military capabilities contribute to presence u
ing U.S. resolve. with physical and virtual means. c
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Strategic agility also gives us the ability
D
to anchor forces in one location and rapidly Whether forces operate globally or from
swing them, if needed, to other locations. forward areas, they operate as a team. To-
This enables military forces, far removed gether, they offer America’s leadership a
from any target, to deliver aid or combat ca- mechanism for modulating responses to
pabilities within minutes or hours of a na- global, regional, or local situations to achieve
tional decision to act. national objectives while controlling risk.
Enhancements in weapon systems and Global presence acknowledges this interde-
related technologies make it possible to pendency. It reconceptualizes presence to
achieve desired effects more quickly and at correspond with the emerging international
less cost. For example, Gulf War Air Power security picture and expands presence to
Survey analysis revealed precision munitions match current and future applications.
were 12 times more effective than non-preci- Today, America’s military forces are
sion munitions. As a result, air forces mini- more mobile, more lethal, and more om-
mized their exposure to enemy defenses and nipresent than ever before. These features
experienced significantly fewer aircraft enhance traditional conceptions of military
losses. At the same time, the use of precision presence by allowing theater commanders to
weapons significantly decreased collateral employ the advantages of all military op-
damage. When combined with the advan- tions, forces, and capabilities.
tages of stealth technologies, precision mu- As we peer into the future, we should
nitions become even more potent. Conse- view global presence as one route the ser-
quently, increased lethality enables America vices can take to achieve our country’s ever
to maintain a credible deterrent threat with evolving national security objectives. We in
a reduced force structure. the military possess the means, physical and
The synergistic benefits achieved when virtual, to provide America continuous
combining situational awareness and strate- awareness of world events and a force capa-
gic agility with lethality allow America to ble of projecting military power worldwide,
consider a wide range of military responses in minutes or hours, with little or no warn-
to worldwide circumstances. These capabili- ing. In so doing, we accomplish our respon-
ties, inherent in our warfighting forces sibility to our civilian leadership and the
(forces that possess the attributes of respon- American people to deter potential adver-
siveness, persistence, flexibility, survivability, saries or fight and win wars decisively. JFQ
and economy) form the cornerstone of
global presence.
Presence Is a Team Effort
America’s military services have always
fought as a team. Goldwater-Nichols codi-
fied this and historical trends clearly sig-
naled this. Today, few would dispute the effi-
cacy of joint warfighting, which Desert
Storm clearly validated.
Spring 1995 / JFQ 99
