CHAPTER 1
Snowflakes from the Secretary

In late 2001, Secretary of Defense Donald H. Rumsfeld summoned the senior military leadership to his office on the E-ring of the Pentagon. It had been an extraordinarily eventful period for the administration of George W. Bush. Kabul had recently fallen. U.S. commandos and Pashtun commanders in southern Afghanistan were on the hunt for Osama bin Laden. In Bonn, Germany, the United States and diplomats from allied nations were prepared to anoint a new group of Afghan leaders.

During his short tenure at the Pentagon, Rumsfeld had established himself as an indomitable bureaucratic presence. It was a commonplace among the Bush team that the military needed stronger civilian oversight, and Rumsfeld exercised control with the iron determination of a former corporate executive. He had a restless mind and was given to boast that he was genetically impatient.

When he arrived at the Pentagon, Rumsfeld made clear that his goal was nothing less than to remake the U.S. military to fashion a leaner and more lethal force. Notepads were strewn throughout his outsized office. When the defense secretary had an idea he scribbled it down. Four-star generals and high-ranking aides were accustomed to receiving snowflakes: terse memos that captured his latest brainstorm or query and that landed with a thud.

Rusmsfeld had been receiving his daily CIA briefing shortly before the American Airlines plane plowed into the building on September 11. Afterward, he had staked out a clear position on how the Bush team should respond. The United States should take the fight to the Taliban and Al Qaeda camps in Afghanistan, but it would not end there. The Pentagon needed to take an even more forceful step that would let its enemies know that the United States was now involved in a global war against the terrorists and the renegade states that helped them. The U.S. needed to land a series of blows well beyond Afghanistan. The question was where and when to strike.

The defense secretary's meeting had been called to ponder the war plan for another potential adversary. General Richard B. Myers, the pliable chairman of the Joint Chiefs of Staff (JCS) who was picked by Rumsfeld because of his reputation as a team player, was there. So was Peter Pace, the ambitious vice chairman who was already being talked about as an officer who might follow in Myers's footsteps. Greg Newbold, the three-star general who served as chief operations deputy for the JCS, had the main assignment for the session. He was to outline Central Command's OPLAN 1003-98, the military's contingency plan in the event of a war with Iraq.

Newbold was armed with a pile of slides as the generals and Rumsfeld sat around a conference table. As Newbold outlined the plan, which called for as many as 500,000 troops, it was clear that Rumsfeld was growing increasingly irritated. For Rumsfeld, the plan required too many troops and supplies and took far too long to execute. It was, Rumsfeld declared, the product of old thinking and the embodiment of everything that was wrong with the military.

Myers asked Rumsfeld how many troops he thought might be needed. The defense secretary said in exasperation that he did not see why more than 125,000 troops would be required and even that was probably too many. Rumsfeld's reaction was dutifully passed to the United States Central Command

"My regret is that at the time I did not say, 'Mr. Secretary, if you try to put a number on a mission like this you may cause enormous mistakes,' " Newbold later recalled. "Give the military the task, give the military what you would like to see them do, and then let them come up with it. I was the junior military guy in the room, but I regret not saying it.

The 1003 plan was ripe for review and was based on the assumption that it would be Iraq that would start the fight. Nonetheless, the plan, which had been regularly exercised in war games, reflected long-standing military principles about the force levels that were needed to defeat Iraq, control a population of more than 24 million, and secure a nation the size of California with porous borders. Rumsfeld's numbers, in contrast, seemed to be pulled out of thin air. He had dismissed one of the military's long-standing plans and suggested his own force level without any of the generals raising a cautionary flag.

General Tommy Franks, the CENTCOM commander, would draw up the new plan, but Rumsfeld would poke, prod, and question the military at every turn. Defense Department civilians would move into Franks's planning cells to monitor his work, and the general would be summoned to Washington repeatedly to present his evolving plan and receive new guidance from his civilian master. The JCS chairman and his staff would be little more than onlookers. Two momentous signals had been sent at Newbold's briefing. Iraq would be the next phase in the Bush administration's self-declared "global war on terror" and the defense secretary would insist on an entirely new kind of Iraq war plan.

When he was running for president, George W. Bush had signaled that he wanted to overhaul the U.S. military. His father's earlier victory in the Persian Gulf, Bush said in a 1999 speech at the Citadel, was an impressive accomplishment, but also one that had taken six months of planning, amassing of military forces and supplies, and preparation. That was too long for the sole remaining superpower to project its power throughout the world. Bush pledged to develop lighter, more mobile, and more lethal forces.

Nor did Bush see the need for the sort of lengthy peacekeeping operations or difficult nation-building missions that the administration of Bill Clinton had undertaken in the Balkans. The purpose of the military, Bush argued, was to fight and win the nation's wars, not to linger to bring stability to newly ordained states. A strong secretary of defense would be appointed and he would have a broad mandate to develop a new military structure. Generals and admirals who supported the new program would be promoted. Billions of dollars in new spending would be channeled for the research and development of missile defense and other high-technology military systems.

The speech was drafted by some of the so-called Vulcans, the cluster of conservative former national security officials who had formed the nucleus of a shadow government during the Clinton years and would later find a place at the top of the new administration. The idea of using advanced reconnaissance systems, command and control networks, and precision weapons to strip away the fog of war and strike the enemy with devastating effect had attracted a small, but influential, group of adherents, and the Vulcans were among them. It was supposed to be nothing less than a revolution in military affairs that would reduce the requirement for large land armies, and with Bush's election some of the self-proclaimed revolutionaries would be in charge.

Once in office, Bush made good on the pledge to support a powerful defense secretary, settling on Rumsfeld, a choice that was strongly endorsed by Vice President Dick Cheney, who sensed that his former mentor would not only have a strong hand at the tiller but would serve as an ally in policy debates.

At sixty-eight, Rumsfeld was full of energy and brimming with confidence. He had been a wrestler in college, a combative and solitary sport, run with the bulls in Spain, followed his father into the Navy, been NATO ambassador, won a seat in Congress, earned a small fortune as the CEO of a pharmaceutical company, and run two government commissions: one on ballistic missile threats from Third World countries and the other on space policy. Rumsfeld was both the youngest and the oldest person to serve as defense secretary, having served as the Pentagon chief under President Gerald Ford. He had not been among the drafters of the Citadel speech, but he wholly supported the theme.

As Rumsfeld prepared to take on his responsibilities at the Pentagon he met with William S. Cohen, the Maine Republican who served as Bill Clinton's secretary of defense. Cohen, who had traveled widely in the post, advised Rumsfeld to go to Wehrkunde, the premier European security conference, which was held annually in Munich over a February weekend. Rumsfeld, he said, needed to get to know the European allies, as otherwise there would not be another opportunity to do so until a NATO meeting the following June. Rumsfeld resisted the idea, arguing that he could not afford to loosen his grip on the Pentagon even for a weekend. Rumsfeld eventually relented and went to Munich, delivered a speech on missile defense, pronounced allied unease about the project to be utterly incomprehensible, and rushed back. The episode was telling: Rumsfeld's principal battleground was the Pentagon, his concern over relations with the allies was secondary, and he was uneasy leaving others in charge even for a day.

At the Defense Department, Rumsfeld was quick to demonstrate and solidify his authority. Each month, the defense secretary was required to approve sensitive reconnaissance operations. The missions were listed in a top secret binder, and once when an action officer came in to get Rumsfeld's okay he noted in passing that the State Department had already reviewed the list and had not seen any problems. The innocent comment was like waving a red flag before a bull. Rumsfeld refused to sign, saying he would need to study the binder first. For several days, there was a mysterious lull in reconnaissance operations as the new defense secretary made clear that the building he was trying to bend to his will could not take him for granted. There were small changes that sent a message as well. The elaborate honor ceremonies for visiting dignitaries were declared to be an unnecessary frill and cut back.

As Rumsfeld saw it, the biggest obstacles to his authority and vision were institutional. All of the Joint Chiefs of Staff—the leaders of the Army, Navy, Air Force, and Marines, who were presided over by a chairman selected by the president—were holdovers from the Clinton administration. Soon after arriving at the Pentagon, Rumsfeld met with General Hugh Shelton, the chairman of the Joint Chiefs of Staff, a former Special Operations Forces commander and an imposing physical presence. Shelton sought to assure Rumsfeld that there was no such thing as Clinton generals and admirals. Shelton and the chiefs would be loyal to the new administration. Rumsfeld, however, was concerned that the JCS and its staff had emerged as a rival source of power. The new defense secretary complained that the Joint Staff was too large and recommended that it be reduced by dispensing with Shelton's office of legislative affairs and his office of public affairs. Shelton stood his ground, arguing that the JCS chairman, by law, was the principal military adviser to the president and the National Security Council as well as the secretary of defense and that he needed a staff to support those responsibilities. Besides, Shelton argued, the civilian staff that reported to the defense secretary was even larger.

At one point, Shelton received a tip from a friendly member of the defense secretary's staff that Rumsfeld planned to fire Scott Fry, the Navy admiral who served as the director of the Joint Staff, which supported the chairman, and who never clicked with the new defense secretary. Shelton burst into Rumsfeld's office unannounced and said he would resign if Fry was replaced. Rumsfeld would then have two vacancies on his hands. Rumsfeld, who had made no secret of his disdain for Fry, insisted he had no such plan. The episode spoke volumes about the strains between the new civilian leadership and the military during the early months of Rumsfeld's tenure. Shelton was determined to defend the prerogatives of his office and its independence. Rumsfeld approached defense like a businessman who saw himself on the top of a steep pyramid.

Copyright © 2006 by Michael R. Gordon and Bernard E. Trainor