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Chapter 19
Transforming the Armed Forces:
An Agenda for Change
Paul K. Davis
*
ince 1997, the Department of Defense (DOD) has placed a great deal of empha-
sis on transforming the force. This emphasis first appeared in the Quadrennial
Defense Review (QDR). It was further encouraged by the National Defense
Panel (NDP), which was commissioned by Congress to review the new strategy. Al-
though the initial DOD treatment was essentially rhetorical, with no immediate influ-
ence on programs or budgets, much of the groundwork has subsequently been laid for
turning that rhetoric into substance. Depending on choices made in the Bush admini-
stration, events over the next 3 to 10 years may indeed prove to be transformatory.
1
This chapter begins with background on why transformation is needed, what some
of its main features are, factors in achieving it, the current status of change within the
United States, and some key issues. Some issues are for the United States alone, but it
is appropriate in this volume on globalization to highlight two points. The first is that
participants in future coalitions will have widely varied capabilities. The second is the
importance of developing a consensus among friendly nations worldwide about how to
increase the effectiveness of multinational political, economic, and military instruments
for extended versions of deterrence and compellence.
Background
Why Transformation Is Needed
Military transformation is not an end in itself, but it is needed for reasons of both
opportunity and necessity.
2
Opportunity. In the relatively near term, America’s forces can exploit modern
technology to maintain their ability to overmatch opponents. Moreover, for most mis-
sions, it will be possible to be more militarily effective than today, even with smaller
forces than would have traditionally been used for those missions. This reflects the
*
Paul K. Davis is a research leader for defense and force transformation planning at RAND.
He also teaches in the RAND Graduate School of Public Policy and formerly served as a sen-
ior executive in the Department of Defense. Dr. Davis is the author of 1000 Decisive Battles:
From Ancient Times to the Present.
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