Peacetime Engagement and Operations Other than War
The real issue framed by Ms House and General Sullivan is whether the President is to have access to military capabilities beyond those of combat in conducting US foreign policy.
In his National Security Strategy of Engagement and Enlargement, President Clinton emphasized the promotion of democracy and peace operations. These objectives were translated into military capabilities in the 1995 National Military Strategy, in which General John M. Shalikashvili, Chairman of the Joint Chiefs of Staff, called for a balance of non-combat and combat capabilities: 'The challenge of the new strategic era is to selectively use the vast and unique capabilities of the Armed Forces to advance national interests in peacetime while maintaining readiness to fight and win when called upon.64 Operations other than war provide the elements of peacetime engagement, one of the three major components of US National Military Strategy:Peacetime engagement describes a broad range of non-combat activities undertaken by our Armed forces that demonstrate commitment, improve collective military capabilities, promote democratic ideals, relieve suffering, and enhance regional stability. The elements of peacetime engagement include military-to-military contacts, nation assistance, security assistance, humanitarian operations, counterdrug and counterterrorism, and peacekeeping.65
The strategic lessons learned from US military history, especially since Vietnam, have taught that operations other than war - by whatever name - are essential to protect US national interests in peacetime. They are the strategic elements of peacetime engagement, and most are civil-military operations; even military-to-military contacts in emerging democracies are intended to improve civil-military relations.
Much of the opposition to operations other than war has to do with their unconventional nature; during the Cold War they were considered special operations in LIC. As reflected in their doctrinal principles, they are significantly different from conventional combat operations and require unique leadership that combines the characteristics of both the warrior and diplomat. The debate over operations other than war and leadership will shape concepts of might and right in the new millennium. If critics prevail, the US will have lost a valuable capability to avoid war.