PNAC

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Established in the spring of 1997, the Project for the New American Century is a non-profit, educational organization whose goal is to promote American global leadership.

"As the 20th century draws to a close, the United States stands as the world's most preeminent power. Having led the West to victory in the Cold War, America faces an opportunity and a challenge: Does the United States have the vision to build upon the achievement of past decades? Does the United States have the resolve to shape a new century favorable to American principles and interests?

[What we require is] a military that is strong and ready to meet both present and future challenges; a foreign policy that boldly and purposefully promotes American principles abroad; and national leadership that accepts the United States' global responsibilities.

Of course, the United States must be prudent in how it exercises its power. But we cannot safely avoid the responsibilities of global leadership of the costs that are associated with its exercise. America has a vital role in maintaining peace and security in Europe, Asia, and the Middle East. If we shirk our responsibilities, we invite challenges to our fundamental interests. The history of the 20th century should have taught us that it is important to shape circumstances before crises emerge, and to meet threats before they become dire. The history of the past century should have taught us to embrace the cause of American leadership."
- From the Project's founding Statement of Principles

The Project for the New American Century was established in the spring of 1997. From its inception, the Project has been concerned with the decline in the strength of America's defenses, and in the problems this would create for the exercise of American leadership around the globe and, ultimately, for the preservation of peace.

Our concerns were reinforced by the two congressionally-mandated defense studies that appeared soon thereafter: the Pentagon's Quadrennial Defense Review (May 1997) and the report of the National Defense Panal (December 1997). Both studies assumed that U.S. defense budgets would remain flat or continue to shrink. As a result, the defense plans and recommendations outlined in the two reports were fashioned with such budget constraints in mind. Broadly speaking, the QDR stressed current military requirements at the expense of future defense needs, while the NDP's report emphasized future needs by underestimating today's defense responsibilities.

Although the QDR and the report of the NDP proposed different policies, they shared one underlying feature: the gap between resources and strategy should be resolved not by increasing resources buy buy shortchanging strategy. America's armed forces, it seemed, could either prepare for the future by retreating from its role as the essential defender of today's global security order, or it could take care of current business but be unprepared for tomorrow's threats and tomorrow's battlefields.

Either alternative seemed to us shortsighted. The United States is the world's only superpower, combining preeminent military power, global technological leadership, and the world's largest economy. Moreover, America stands at the head of a system of alliances which includes the world's other leading democratic powers. At present the United States faces no global rival. America's grand strategy should aim to preserve and extend this advantageous position as far into the future as possible. There are, however, potentially powerful states dissatisfied with the current situation and eager to change it, if they can, in directions that endanger the relatively peaceful, prosperous and free condition the world enjoys today. Up to now, they have been deterred from doing so by the capability and global presence of American military power. But, as that power declines, relatively and absolutely, the happy conditions that follow from it will be inevitably undermined.

Preserving the desirable strategic situation in which the United States now finds itself requires a globally preeminent military capability both today and in the future. But years of cuts in defense spending have eroded the American military's combat readiness, and put in jeopardy the Pentagon's plans for maintaining military superiority in the years ahead. Increasingly, the U.S. military has found itself undermanned, inadequately equipped and trained, straining to handle contingency operations, and ill-prepared to adapt itself to the revolution in military affairs. Without a well-conceived defense policy and appropriate increase in defense spending, the United States has been letting its ability to take full advantage of the remarkable strategic opportunity at hand slip away.

With this in mind, we began a project in the spring of 1998 to examine the country's defense plans and resource requirements. We started from the premise that U.S. military capabilities should be sufficient to support an American grand strategy committed to building upon this unprecedented opportunity. We did not accept pre-ordained constraints that followed from assumptions about what the country might or might not be willing to expend on its defenses.

In broad terms, we saw the project as building upon the defense strategy outlined by the Cheney Defense Department in the waning days of the Bush Administration. The Defense Policy Guidance (DPG) drafted in the early months of 1992 provided a blueprint for maintaining U.S. preeminence, precluding the rise of a great power rival, and shaping the international security order in line with American principles and interests. Leaked before it had been formally approved, the document was criticized as an effort by "cold warriors" to keep defense spending high and cuts in forces small despite the collapse of the Soviet Union; not surprisingly, it was subsequently buried by the new administration.

Although the experience of the past eight years has modified our understanding of particular military requirements for carrying out such a strategy, the basic tenets of the DPG, in our judgement, remain sound. And what Secretary Cheney said at the time in response to the DPG's critics remains true today: "We can either sustain the [armed] forces we require and remain in a position to help shape things for the better, or we can throw that advantage away. [But] that would only hasten the day when we face greater threats, at higher costs and further risk to American lives."

New circumstances make us think that the report might have a more receptive audience now than in recent years. For the first time since the late 1960s the federal government is running a surplus. For most of the 1990s, Congress and the White House gave balancing the federal budget a higher priority than funding national security. In fact, to a significant degree, the budget was balanced by a combination of increased tax revenues and cuts in defense spending. The surplus expected in federal revenues over the next decade, however, removes any need to hold defense spending to some preconceived low level.

Moreover, the American public and its elected representatives have become increasingly aware of the declining state of the U.S. military. News stories, Pentagon reports, congressional testimony and anecdotal accounts from members of the armed services paint a disturbing picture of an American military that is troubled by poor enlistment and retention rates, shoddy housing, a shortage of spare parts and weapons, and diminishing combat readiness.

Finally, this report comes after a decade's worth of experience in dealing with the post-Cold War world. Previous efforts to fashion a defense strategy that would make sense for today's security environment were forced to work from many untested assumptions about the nature of a world without a superpower rival. We have a much better idea today of what our responsibilities are, what the threats to us might be in this new security environment, and what it will take to secure the relative peace and stability. We believe our report reflects and benefits from that decade's worth of experience.

Our report is published in a presidential election year. The new administration will need to produce a second Quadrennial Defense Review shortly after it takes office. We hope that the Project's report will be useful as a road map for the nation's immediate and future defense plans. We believe we have set forth a defense program that is justified by the evidence, rests on an honest examination of the problems and possibilities, and does not flinch from facing the true cost of security. We hope it will inspire careful consideration and serious discussion. The post-Cold War world will not remain a relatively peaceful place if we continue to neglect foreign and defense matters. But serious attention, careful thought, and the willingness to devote adequate resources to maintaining American's military strength can make the world safer and American strategic interests more secure now and in the future.

This report proceeds from the belief that America should seek to preserve and extend its position of global leadership by maintaining the preeminence of U.S. military forces. Today, the United States has an unprecedented strategic opportunity. It faces no immediate great-power challenge; it is blessed with wealthy, powerful and democratic allies in every part of the world; it is in the midst of the longest economic expansion in its history; and its political and economic principles are almost universally embraced. At no time in history has the international security order been as conducive to American interests and ideals. The challenge for the coming century is to preserve and enhance this "American peace."

Yet unless the United States maintains sufficient military strength, this opportunity will be lost. And in fact, over the past decade, the failure to establish a security strategy responsive to new realities and to provide adequate resources for the full range of missions needed to exercise U.S. global leadership has placed the American peace at growing risk. This report attempts to define those requirements. In particular, we need to:

ESTABLISH FOUR CORE MISSIONS FOR U.S. MILITARY FORCES:

* defend the American homeland;
* fight and decisively win multiple, simultaneous major theater wars;
* perform the "constabulary" duties associated with shaping the security environment in critical regions;
* transform U.S. forces to exploit the "revolution in military affairs;"

- To carry out these core missions, we need to provide sufficient force and budgetary allocations, In particular, the United States must:

MAINTAIN NUCLEAR STRATEGIC SUPERIORITY, basing the U.S. nuclear deterrent upon a global, nuclear net assessment that weighs the full range of current and emerging threats, not merely the U.S.-Russia balance.

RESTORE THE PERSONNEL STRENGTH of today's force to roughly the levels anticipated in the "Base Force" outlined by the Bush Administration, an increase in active-duty strength from 1.4 million to 1.6 million.

REPOSITION U.S. FORCES to respond to 21st century strategic realities by shifting permanently-based forces to Southeast Europe and Southeast Asia, and by changing naval deployment patterns to reflect growing U.S. strategic concerns in East Asia.

CONTROL THE NEW "INTERNATIONAL COMMONS" OF SPACE AND "CYBERSPACE," and pave the way for the creation of a new military service - U.S. Space Forces - with the mission of space control.

INCREASE DEFENSE SPENDING gradually to a minimum level of 3.5 to 3.8 percent of gross domestic product, adding $15 billion to $20 billion to total defense spending annually.

Despite the centrality of major theatre wars in conventional-force planning, it has become painfully obvious that U.S. forces have other vital roles to play in building an enduring American peace. The presence of American forces in critical regions around the world is the visible expression of the extent of America's status as a superpower and as the guarantor of liberty, peace and stability. Our role in shaping the peacetime security environment is an essential one, not to be renounced without great cost: it will be difficult, if not impossible, to sustain the role of global guarantor without a substantial overseas presence. Our allies, for whom regional problems are vital security interests, will come to doubt our willingness to defend their interests if U.S. forces withdraw into a Fortress America. Equally important, our worldwide web of alliances provides the most effective and efficient means for exercising American global leadership; the benefits far outweigh the burdens. Whether established in permanent bases or on rotational deployments, the operations of U.S. and allied forces abroad provide the first line of defense of what may be described as the "American security perimeter."

Since the collapse of the Soviet empire, this perimeter has expanded slowly but inexorably. In Europe, NATO has expanded, admitting three new members and acquiring a larger number of "adjunct" members through the Partnership for Peace program. Tens of thousands of U.S, NATO and allied troops are on patrol in the Balkans, and have fought a number of significant actions there; in effect, the region is on the road to becoming a NATO protectorate. In the Persian Gulf region, the presence of American forces, along with British and French units, has become a semi-permanent fact of life. Though the immediate mission of those forces is to enforce the no-fly zones over northern and southern Iraq, they represent the long-term commitment of the United States and its major allies to a region of vital importance. Indeed, the United States has for decades sought to play a more permanent role in Gulf regional security. While the unresolved conflict with Iraq provides the immediate justification, the need for a substantial American force presence in the Gulf transcends the issue of the regime of Saddam Hussein. In east Asia, the pattern of U.S. military operations is shifting to the south: in recent years, significant naval forces have been sent to the region around Taiwan in response to Chinese provocation, and now a contingent of U.S. troops is supporting the Australian-led mission to East Timor. Across the globe, the trend is for a larger U.S. security perimeter, bringing with it new kinds of missions.

To preserve American military preeminence in the coming decades, the Department of Defense must move more aggressively to experiment with new technologies and operational concepts, and seek to exploit the emerging revolution in military affairs. Information technologies, in particular, are becoming more prevalent and significant components of modern military systems. These information technologies are having the same kind of transforming effects on military affairs as they are having in the larger world. The effects of this military transformation will have profound implication for how wars are fought, what kinds of weapons will dominate the battlefield and, inevitably, which nations enjoy military preeminence.

The United States enjoys every prospect of leading this transformation. Indeed, it was the improvements in capabilities acquired during the American defense buildup of the 1980s that hinted at and then confirmed, during Operation Desert Storm, that a revolution in military affairs was at hand. At the same time, the process of military transformation will present opportunities for America's adversaries to develop new capabilities that in turn will create new challenges for U.S. military preeminence.

Moreover, the Pentagon, constrained by limited budgets and pressing current missions, has seen funding for experimentation and transformation crowded out in recent years. Spending on military research and development has been reduced dramatically over the past decade. Indeed, during the mid-1980's, when the Defense Department was in the midst of the Reagon buildup which was primarily an effort to expand existing forces and field traditional weapons systems, research spending represented 20 percent of total Pentagon budgets. By contrast, today's research and development accounts total only 8 percent of defense spending. And even this reduced total is primarily for upgrades of current weapons. Without increased spending on basic research and development the United States will be unable to exploit the RMA and preserve its technological edge on future battlefields.

Any serious effort at transformation must occur within the larger framework of U.S. national security strategy, military missions and defense budgets. The United States cannot simply declare a "strategic pause" while experimenting with new technologies and operational concepts. Nor can it choose to pursue a transformation strategy that would decouple American and allied interests. A transformation strategy that solely pursued capabilities for projecting force from the United States, for example, and sacrificed forward basing and presence, would be at odds with larger American policy goals and would trouble American allies.

Further, the process of transformation, even if it brings revolutionary change, is likely to be a long one, absent some catastrophic and catalyzing event - like a new Pearl Harbor. Domestic politics and industrial policy will shape the pace and content of transformation as much as the requirements of current missions.

In general, to maintain American military preeminence that is consistent with the requirements of a strategy of American global leadership, tomorrow's U.S. armed forces must meet three new missions:

* Global missile defenses. A network against limited strikes, capable of protecting the United States, its allies and forward-deployed forces, must be constructed. This must be a layered system of land, sea, and space-based components.

* Control of space and cyberspace. Much as control of the high seas - and the protection of international commerce - defined global powers in the past, so will control of the new "international commons" be a key to world power in the future. An American incapable of protecting its interests of that of its allies in space or the "infosphere" will find it difficult to exert global political leadership.

* Pursuing a two-stage strategy for of transforming conventional forces. In exploiting the "revolution in military affairs," the Pentagon must be driven by the enduring missions for U.S. forces. This process will have two stages: transition, featuring a mix of current and new systems; and true transformation, featuring new systems, organizations and operational concepts. This process must take a competitive approach, with services and joint-service operations competing for new roles and missions. Any successful process of transformation must be linked to the services, which are the institutions within the Defense Department with the ability and the responsibility for linking budgets and resources to specific missions.

Only such a force posture, service structure and level of defense spending will provide America and its leaders with a variety of forces to meet the strategic demands of the world's sole superpower. Keeping the American peace "In the Persian Gulf region, the presence of American forces, along with British and French units, has become a semi-permanent fact of life. Though the immediate mission of those forces is to enforce the no-fly zones over northern and southern Iraq, they represent the long-term commitment of the United States and its major allies to a region of vital importance. Indeed, the United States has for decades sought to play a more permanent role in Gulf regional security. While the unresolved conflict with Iraq provides the immediate justification, the need for a substantial American force presence in the Gulf transcends the issue of the regime of Saddam Hussein."