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 implications 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 Reagan 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. A decision to suspend or terminate aircraft carrier production, as recommended by this report and as justified by the clear direction of military technology, will cause great upheaval. Likewise, systems entering production today - the F-22 fighter, for example - will be in service inventories for decades to come. Wise management of this process will consist in large measure of figuring out the right moments to halt production of current-paradigm weapons and shift to radically new designs. The expense associated with some programs can make them roadblocks to the larger process of transformation - the Joint Strike Fighter program, at a total of approximately $200 billion, seems an unwise investment. Thus, this report advocates a two-stage process of change - transition and transformation - over the coming decades.
