THE MONUMENTAL CHANGES in the international security order over the past decade demand a reexamination of the circumstances and procedures regarding the application of military force.

Since the end of Operation Desert Storm, absent the brake of the Cold War competition and faced with a rising tide of instability, the United States has committed its armed forces to a wide range of military operations over thirty times. Currently, 50,000 American troops are deployed in various regions around the world, participating in thirteen ongoing missions. In each case, the introduction of military forces was made after a careful examination of the benefits of each particular operation and the inherent risks involved. In nearly every case, the United States used its forces in conjunction with the United Nations, regional security organizations, or both.

The United States and its partners initiated each one of these operations to secure specific objectives, such as to facilitate the humanitarian efforts of nongovernmental organizations, to enforce cease-fire agreements, or to secure diplomatic initiatives. While these operations have been undertaken as a reaction to an international crisis, they have most certainly served to mitigate the threat of mass violence and have allowed the belligerent parties the latitude to further the process of peace.

Each operation must be judged on its own merit. However, our experiences of the past few years provide us with the added benefit of increasing our knowledge base and experience in developing a more systematic approach to dealing with international crises. Issues that at one time seemed almost intractable, such as forming ad hoc coalitions and establishing fully capable command and control structures for peace operations, are now becoming more workable in light of the lessons that we have learned.

This report, by one of America's premier strategic thinkers, is another step in that education process, and it advances the discussion on the proper use of force to alleviate the horrendous effects of regional conflicts. It is a thorough and thought-provoking study on the proper application of military power to forestall the escalation of confrontation and violence.

JOHN M. SHALIKASHVILI
Chairman of the Joint Chiefs of Staff
18 April 1996