Note the dual versions: one for dummies and one for people who like paragraphs that actually go together. I gotta admit. I liked the one for dummies better!
Public Governance ìBook Review in Briefî
THE PENTAGONíS NEW MAP by Thomas P. M. Barnett.
Putnam Publishing Group, 2004, 389 pages, $26.95
CORE THESIS: Around the world, the ìhave-notsî are ìdisconnectedî from global commerce, and they pose a mortal threat. The U.S. role is to lead, militarily where necessary, the ìconnectedî states in an effort to impose security and begin reconstruction and development of those ìdisconnectedî countries and regions. This will require a radical shift in how U.S. policymakers view their mission, leading to a completely restructured defense establishment.
WRITING STYLE: Aside from the self-invented jargon, this books offers an almost ìThere I Wasî style. It contains a good bit of biography and ìinsiderî stories about the Pentagon. One gets the impression that NEW MAP is what the author almost says it is -- a book-length extension of a heavy-duty Power Point presentation. It has some of the feel of a typical DOD brief. Nonetheless, Barnett conveys powerful ideas succinctly and with clear logic.
ABOUT THE AUTHOR: Thomas P. M. Barnett is a senior researcher and professor at the U.S. Naval War College. In partnership with Cantor Fitzgerald, Barnett directed the ìNewRuleSets.Projectî (a multi-year effort to explore how the spread of globalization alters the basic ìrules of the roadî for international security). He also directed the Year 2000 International Security Dimension Project and ran projects for the Center for Naval Analysis and the Institute for Public Research. In sum, he has gobs of experience and credentials, but that hasnít killed his imagination or sapped his energy.
WHO NEEDS THIS BOOK: (a) Anyone connected with the White House who realizes that the Presidentís foreign policy, while solidly designed, has been poorly described and defended; (b) pundits who donít have a clue about whatís at stake in the ìwar on terrorî; and (c) European policymakers whose heads are not irrevocably stuck in the sand.
WHO SHOULD STEER CLEAR OF THIS BOOK: Anyone who has a vested interest in the world one recalls from before 9/11/2001. This means a person with economic or power positions threatened by events and demands since then. But ìvested interestî also refers to individuals and groups that are psychologically dependent on a bygone era and in denial about the need to change, which by definition means trading the security of the known for the insecurity of the unknown.
ABOUT THE REVIEWER: Don Morrissey worked on Capitol Hill during 1980-95, where he helped fund and organize anti-Communist counterinsurgency activities in several countries including Afghanistan. He is now a legislative strategist with expertise in the financial-services industry. Reactions welcome at DonaldJMorrissey@aol.com
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For those who like traditional book evaluations, hereís a longer takeÖ
THE PENTAGONíS NEW MAP
by Thomas P. M. Barnett
Since an earlier Bush Administration introduced it in 1991, the phrase ìNew World Orderî has done much to help conspiracy theorists. The rest of us went through the 1990s wondering: ìNew World Order, huh? What is Dat? And where does the United States fit in?î
This reasoned and sometimes brilliant book is the best single place to find workable long-term answers. Barnettís key contribution is building a bridge over the torrent of todayís events (war on terror, globalization, cross-Atlantic finger-pointing) to what he calls ìa future worth creating.î
Much of todayís debate exposes a disconnect (about the size of the Grand Canyon) between the immediate ó ìglobal war on terrorî ó and the longer term. The latter requires defining and executing the critical role for the United States in the new era of globalization. Some smart-alecky critics of the Iraq war claim that terrorism is process, not a place. Ergo, why are we in Iraq? Barnett makes the connection between the process (terrorism) and shows us the place -- where it is; why it is; and what we need to do about it.
But first, a slight digression. NEW MAPís second chapter contains a paragraph both Presidential candidates and every pontificator on the ìwar on terrorî need to memorize. It is the most concise description you will find of the military aspects of the global war on terror: ì[T] his global war on terror is simultaneously fought across all three of the levels I cited earlier: Network war across the global system to disrupt terrorist financing, communications, and logistics; state-based war against rogue regimes that harbor or support such terrorist groups; and special operations that target individuals for either capture or -- when dictated by circumstances -- serial assassination.î
Thatís it in a nutshell. We are experiencing the clarity of a nuance-free zone. And that was only the authorís preamble.
In the new era of globalization, according to Barnett, the fault line is not ìnorth vs. southî or ìrich vs. poorî or ìcommunist vs. capitalist,î but ìthe Functioning Coreî and ìthe non-integrating Gap.î The ìCoreî countries and regions live within, or try to move towards, the mutually understood and accepted ìrule-setsî that provide global stability and prosperity. The countries or regions in the ìGapî either canít or wonít do so.
Listen to Barnett define the bifurcated world. A region or a country in the ìCoreî can (1) ìaccept the connectivity and can handle the content flows associated with integrating oneís national economy to the global economyî; or (2) ìseeks to harmonize its internal rule-sets with the emerging global rule of democracy, rule of law, and free marketsî; or is (3) ìadministered by a single dominant party that ó in fairly technocratic style ó engineers a systematic, state-directed economic development strategy.î
The ìGapî is where none of this exists.
Okay, this time in plainer English. Security, the rule of law and institutions not only allow you to interact with your neighbor, but your neighborís neighbor, his neighborís neighbor, and so on. No matter what the geographical distance, you have commerce: Ideas, people and things all move relatively freely and under mutually understood and accepted rules. With true commerce, you have connectivity. If you are ìconnected,î you are part of the ìCore.î
Without security, and lacking laws or institutions that allow you to connect to the middle, long, and sometimes short end of the neighborís-neighbor chain, under mutually accepted rules, you fall into the ìGap.î
This is also where you have mass murder, rape and pillage. (Iím not sure in which part of the world Hollywood fits.) Itís also where you tend to have despots, theocracies, warlords and just plain thieves doing the ìgoverning.î (Again, the Hollywood question arises.)
Now for the kicker: in a post-Cold War world, virtually all wars, terrorism, and terrorists come from the ìGap.î Thus, the key national security and foreign-policy objective for the United States, over the coming decades, is to systematically shrink the ìGap.î We need policies that move individuals, families, tribes and nations out of it. Since many will prefer to stay where they are, this means transforming several regions and environments.
Multilaterism Yes, Exit Strategies Probably Not
First, Barnett wants the U.S. to educate domestic audiences and also our ìCoreî allies as to why the rule-sets of globalization are critical to global stability and prosperity. By definition, a ìfunctioning Coreî works on a degree of consensus. Thus the imperative to consciously expand the ìCoreî (or shrink the ìGapî) needs a degree of consensus and commitment.
Barnett lays out part of this explanation: ìI think four things need to be spelled out clearly to both our citizens and the rest of the Core: (1) that arms control as we have known it for decades is now dead and buried; (2) that it is not a question of ëwhení unilateralism makes sense, but ëwhereí; (3) that while itís okay for America to ó in most instances ó get the ball rolling on specific security threats within the Gap, eventually all jobs there are multilateral efforts; and (4) since there is no exiting the Gap militarily, there is no such thing as an exit strategy.î
Second and more important, the U.S., as the only power capable of doing so, must take the lead in advancing these ìrule-setsî inside the ìGap.î This is where Barnettís long experience with force structure and strategy (grand as well as military) come into play. To take the lead in a systematic and long-term way, Barnett favors changing the U.S. military force from its current structure to two different forces:
The first is called ìLeviathanî and ìwould be a smaller, deadly military organization with technological superiority.î Not unlike the forces that operated in Afghanistan and Iraq (at least in Iraq from March to May 2003). This force would tackle rogue regimes and its special-ops component would handle the individual cadres not defined within rogue regimes. This force would be the spear-tip in the thrust to lay down the first security ìrule-setsî where they do not exist today.
The second, called ìSys-Admin,î would be civil-affairs oriented and network-centric, providing resources and technical expertise for old or new friends in need. They would be the follow-on resources to maintain the security rule-sets and help initiate the reconstruction and development activities to allow ìconnectivityî to take root. Here is the force that has been, or rather should have been, operating in Iraq from May 2003 on.
This military transformation, and all it entails, plays to Barnettís strong suit. He tells the tale much better than a Web review can convey. What matters is that he has thoroughly thought through the structure and activities necessary to carry out his key mandate: That the U.S. role in the New World Order is to lead the imposition of rule-set changes in those parts of the world where todayís norms either thwart global stability or are non-existent.
What About China, Russia, Fundamentalist Culture?
I like where Barnett has ended up (canít you tell?) -- yet no single book with NEW MAPís ambition could be completely convincing. Accordingly, after appreciating the bookís neat and clean strokes, a reader begins to wonder aboutÖwell, ìgapsî in the new scheme. Let me briefly mention three:
First, Barnett is too sanguine about the ability of the U.S. to ìconnectî the ìunconnectedî world through imposition of ìpeaceî (security rule-sets) and support for commerce (globalization). Some people donít want to be connected (Al Qaeda, most Middle Eastern rulers) and are willing to kill and die to stay disconnected. Followers of Osama bin Laden are the most radical of those who are ìresisting changeî not because globalization will squeeze their enterprises, but because they see their sacred values as being under siege. No matter how well we follow Barnettís strategic imperative to shrink the ìGap,î an irreducible number of peoples and/or countries will hate us not for what we do, but for what we are. How do you solve that?
Second, he is disdainful of any threats to U.S. security that appear outside the ìGap,î including the biggest one I see: China. It would also be wise to account for potential tensions with a revitalized ìnationalistî Russia.
Third, since his forte is military, he comes up short on saying anything about the non-military institutions and policies that need changing to address the world as he sees it. If anyone thinks that institutions such as the State Department, USIA, CIA, AID, IMF, World Bank or NATO are capable of effectively addressing the world Barnett describes for, they need to send me whatever prescription medicine they are taking. More on the need for widespread institutional change in the next segment.
Working the Plan Before You Have Worked Out the Plan
Barnett is calling for a basic change in the strategic framework of U.S. foreign policy -- akin to the changes that occurred between 1945 and 1950. This also entails managing a change in the structures that undergird policy.
The strategic framework that governed the following four decades is contained in ìNSC-68î (National Security Memorandum #68), which became official on April 14, 1950. But The Truman Administration had begun to function under some of its principles when confronted with Soviet attempts to dominate war-torn Europe, several years before NSC-68 became policy.
Starting in 1947, the Truman Administration delivered military and economic support against the communists in the Greek Civil war. It acted covertly in the Italian political and economic environment to prevent a Communist takeover in 1948. During 1948-52, the Marshal Plan lifted Europe from wartime ashes and allowed it to be a bulwark against Soviet expansionism. Truman and his people also reorganized the U.S. military and national-security apparatus with the National Security Act of 1947, which among other things created the NSC, the CIA and a new, separate military service, the Air Force.
Similarly, Barnett credits the Clinton Administration, in the post-Cold War era of globalization, with actively taking ìthe lead in enunciating the overarching economic rule-sets that guided globalizationís advancing across the 1990s.î
He credits the current Administration with recognizing that ìglobalizationís security rule-sets need to catch up with its economic rule-sets.î This includes the actions in Afghanistan and in Iraq, as well as efforts by the Pentagon to begin ìtransformationî of the military.
So a rough parallel emerges. The United States in both cases, following the end of a war, reacted to a crisis in ways that are congruent with a strategic framework ñ but without having the name. And by changing the strategic framework, it becomes necessary to change the structure and apparatus of the government to accomplish that new ìmission.î
Barnett does a good job of describing and applauding what he sees as the U.S. militaryís efforts to initiate and manage the change that goes along with the new strategic framework. His book does not offer much on how the other cultures and institutions of U.S. foreign policy will need to change, or how each set of responsible officials will execute that change.
The ìchange processî weíre witnessing today, in policy and structure, is similar to that at the start of the Cold War. Rather than being seamless, it takes place in fits and starts. And the lesson from 1945-50 is that the ìframeworkî of policy might not be fully in place before the structural changes are accomplished -- or vice versa. Barnett appears to believe that, if you follow the logic of his strategic framework, then managing the structural change will become obvious. Without mentioning Peter Drucker, he affirms the latterís prescription from the business world: ìStructure follows strategy.î
But I think the authorís biggest contribution is implicit: Until the U.S. understands and manages a change in its basic strategic foreign policy outlook, the wrong questions will continue to be asked; and the wrong measurements will continue to be used to define the relative ìsuccessî or failure of U.S. foreign policy.
From the NEW MAP perspective, media coverage of activities in Iraq and Afghanistan has mostly dealt with the wrong things. The author states that ìthe fundamental measure of effectiveness for any U.S. military intervention inside the gap must be: Did we end up improving the local security sufficiently to trigger an influx of global connectivity?Ö Increasingly, our military interventions will be judged by the connectivity they leave behind, not the smoking holes.î
A last point about the ìeducation processî advocated by Thomas Barnett: ìUntil the Bush Administration describes the future worth creating in terms ordinary people and the rest of the world can understand, we will continue to lose support at home and abroad for the great task that lies ahead.î Exactly. THE PENTAGONíS NEW MAP is a stab at creating the NSC-68 for this ìera of globalization.î And an impressive one.
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Feedback is welcome by reviewer Don Morrissey ñ write to DonaldJMorrissey@aol.com
For a lively Providence Journal account (from March 2003) of author Barnettís background and advocacy methods, see http://www.nwc.navy.mil/newrulesets/Projo%20profile%20of%20Barnett.htm
COMMENTARY: You can tell this guy worked on the Hill because heís such a smart-ass, and a clever one at that. This is simultaneously one of the best summaries of the book and the funniest review I have read to date. He probes the bookís weaknesses better than any reviewer to date, but likewise is the most forgiving given its scope and stated ambitions. As a veteran of many Pentagon briefs, Morrissey knows where to poke holes, and I donít argue with his catches. Hell, I loved the review solely for the ìwho needs this bookî and ìwho should avoid itî paras, which were not only spot-on in their analysis, but good enough for stand-up theyíre so funny. Overall, very sharp mind, very sharp review. Anybody who takes the book that seriously can fire at will as far as Iím concerned.