A paper submitted to the Faculty of the Naval War College in partial satisfaction of the requirements of the Department of Joint Military Operations and the Master of Arts in national security and decision making.
How does the U.S. Coast Guard view itself as a military service? What are its strengths and weaknesses? What unique capabilities does it bring to the joint force?
The U.S. Coast Guard, which traces its organizational roots to 1790 and the Revenue Cutter Service, sees itself as a āmulti-mission, military, maritime service.ā (U.S. Coast Guard, p 6) This triad is reiterated in any number of publications and venues including prominent places in the 2003 Commandantās Direction. Within this definition, we see three distinct emphases. The Coast Guard prides itself on being a military force with the same obligations, risks, and responsibilities of the other four military services. The Coast Guard culture is different, however. The Coast Guard is primarily a service of ālife saversā or āSmokies of the Sea.ā The culture is one of rescue and, to a lesser extent, law enforcement. The Coast Guard does not have a warrior ethos or focus; no matter what the language of the serviceās senior leaders, the ethos within the ranks is one of rescue and law enforcement. The Coast Guard Publication 1 states the service has a āunique blend of humanitarian, law enforcement, regulatory, diplomatic, and military capabilities.ā (U.S. Coast Guard, p 6) The Coast Guard hangs its hat on this idea of multi-mission and blended roles.
A Watershed Time for Coast Guard Missions
According to the Commandant of the Coast Guard, this is a āwatershed timeā in the Coast Guardās history. (Philpott, p 52) The Commandant also suggested the serviceās move to the Department of Homeland Security has had on impact on missions and resources, shifting āassets into the homeland security missionā and yet maintaining the multi-mission organization. (Philpott, p 52) Search and rescue, which had been the cornerstone mission area for the Coast Guard, now shares the spotlight with homeland security. These two mission areas are not on par.
The Coast Guard has five fundamental roles, each with several mission areas (which might support additional roles). Each mission is ābased on one or more mandated or authorized dutiesā (U.S. Coast Guard, p 6-18):
Maritime Security
- Drug Interdiction
- Alien Migrant Interdiction
- Economic Exclusion Zone and Living Marine Resource Law/Treaty Enforcement
- General Maritime Law Enforcement
Maritime Safety
- Search & Rescue
- Marine Safety
- Recreational Boating Safety
- International Ice Patrol
Protection of Natural Resources
- Marine Environmental Protection
- Domestic Fisheries Enforcement
- Protected Living Marine Resource Law Enforcement
Maritime Mobility
- Aids to Navigation
- Icebreaking Services
- Bridge Administration
- Waterways/Vessel Traffic Management
National Defense Missions
- General Defense Operations
- Maritime Interception Operations*
- Military Environmental Response Operations*
- Port Operations, Security, and Defense*
- Peacetime Military Engagement*
- Coastal Sea Control Operations*
- Polar Icebreaking
* Agreement between Coast Guard and Department of Defense to support Combatant Commanders with these missions.
The Coast Guard is often pulled in different directions. While everything the Coast Guard does revolves around the maritime environment, and every petty officer, warrant officer, and commissioned officer is a federal law enforcement officer by statute, emphasis slides along a spectrum of conflict from search and rescue operations (low conflict) to counter-terrorism and force protection operations (high conflict). The Coast Guard must operate along the full spectrum and her people must be comfortable along the full spectrum. As noted above, the Commandant sees the service at a revolutionary time. Members of the service realize the time today, post 9/11, is different. Search & rescue shares top billing with homeland security operations; many Coast Guard personnel see the shift continuing with search & rescue taking second billing or even further down the spectrum of perceived importance. Some mission areas seem to be outside the Department of Homeland Security mandate; some service members would not be surprised to see these non-core missions cast off. While Publication 1 ā a pre-9/11 document ā states āsince at least the late nineteenth century, the mission of aiding distressed mariners usually has trumped all other priorities,ā (U.S. Coast Guard, p 79) this emphasis is changing.
Service Strengths
The Coast Guard is, indeed, the service with expertise at operations in the coastal maritime environment. The Coast Guardās assets are designed and well suited for coastal operations ā response boats, motor life boats, patrol boats are all specialized for the coastal environment. Even the Coast Guardās new ādeepwaterā assets will be used primarily in the coastal environment. One of the primary missions of the new ānational security cutterā will be port security, serving as on scene command and control for port approaches such as the Chesapeake Bay, Delaware Bay, New York Harbor, and San Francisco Bay. Certainly, this use of this major cutter falls in the coastal environment. Coast Guard personnel are also experienced in the coastal environment, matched with the capabilities of vessels and aircraft.
Coast Guard personnel are willing to take the initiative to get
the job done. Not only is on-scene initiative one of the Coast
Guardās seven defined principles of Coast Guard operations, but
it truly is a part of the Coast Guard culture. (U.S. Coast
Guard, p 76ff) This principle of initiative ā at least in
practice ā goes beyond the idea of on-scene command. Coast Guard
personnel, no matter their station, are encouraged and expected
to take initiative. Whether itās a young petty officer deciding
how to react to suspicious men on a deserted Long Island beach
during World War II, or a rescue coordination center watch
stander diverting naval and commercial vessels for a search and
rescue incident, or a boarding officer completing a boarding on
a recreational vessel, Coast Guard personnel take initiative and
operate within broad, given boundaries. Generally, Coast Guard
personnel ā when they see a task which needs doing ā do it. They
donāt wait for orders.
Along with initiative, Coast Guard personnel are flexible, and,
thus, the service is flexible. The official Coast Guard motto is
semper paratus, always prepared. The unofficial motto is semper
gumby, always flexible. Like Gumby, Coast Guard personnel are
flexible. One moment a Coast Guard member might be enforcing
fisheries laws, the next pulling a boating accident victim from
the water, and the next enforcing a security zone around a naval
or high value commercial vessel. Coast Guard personnel must
shift effortlessly among missions, adopting the stance requisite
for each. More than 200 years ago, Alexander Hamilton offered
advice to boarding officers of the newly formed Revenue Cutter
Service; he urged these men to āactivity, vigilance, and
firmnessā coupled with āprovidence, moderation, and good
temper.ā (Hamilton) He understood that the serviceās members
would tread a fine line in all they did. As an organization,
flexibility has been, and continues to be, key. The Coast Guard
is the amalgamation of six agencies merged together during the
past 200 years. A founding component of the Department of
Transportation, the Coast Guard was recently moved to the new
Department of Homeland Security in the largest federal
reorganization in more than fifty years. In a changing world
with shifting priorities and minimal resources, flexibility is
key.
Weaknesses of the Coast Guard as a Service
While many see the Coast Guardās multi-mission focus as a
strength, it is also a weakness, the serviceās Achilles Heel. As
noted above, the Coast Guard prides itself on being
multi-mission, being all things to all people. But this means
that the Coast Guard is not able to specialize, to focus on one
singular strength. As noted by several current management and
leadership thinkers, including Jim Collins, great organizations
focus on one thing. It is this focus on one strength, one
critical task, which sets great organizations apart from good
organizations. (Collins) That the Coast Guard and her personnel
need to be proficient in more than 20 individual and divergent
missions ensures that not all of them will be done superbly.
Instead Coast Guard personnel attempt to be
semper paratus when
sometimes paratus is more likely.
(Note: As a watch stander in the Coast Guardās Atlantic Area
Command Center, a multi-mission center responsible for all
operations in the eastern United States and the Atlantic
Ocean, I realized no single person could know everything about
every mission. Even with more than sixteen years of
experience, it was evident I did not know all there was to
know. And, sadly, no watch stander did. There was just too
much.)
Not only does the Coast Guard find itself trying to be many
things to many people, she finds herself under-resourced. A
small service, the Coast Guard is composed of about 40,000
active duty personnel, 6,300 civilian employees, and 8,000
part-time military members (reservists). The service is also
blessed with a volunteer, civilian force of some 35,000 members
who donate their time in support of the Coast Guardās missions,
particularly boating safety and search & rescue. With more
than 1400 small boats, 230 cutters (ranging from 65 feet to 400
feet), and 160 aircraft, the Coast Guard finds itself conducting
multiple missions on the high seas, in the coastal environment,
and on the nationās lakes and rivers. (U.S. Naval War College, p
3.3-14) Even with Deepwater set to recapitualize 93 of the
serviceās multi-mission, white hull cutters, the Coast Guard
will be stretched thin. (U.S. Naval War College, p 3.3-58) The
Coast Guard is responsible for search & rescue and twenty
other missions along more than 95,000 miles of shoreline and in
360 ports. (U.S. Naval War College, p 3.3-52) The task is
immense.
Lastly, the Coast Guard finds itself pressed into a ājoint worldā with no real strategy for working in this joint world. The Coast Guard, by itās very nature, is expected to work operationally with the Combatant Commanders of the Department of Defense, as well as with law enforcement agencies at the local, state, federal, and international levels, and with safety organizations at each of these levels. The Coast Guard must be able to speak and understand Department of Defense speak, Department of Homeland Security speak, law enforcement speak, intelligence speak, and safety speak. And, the Coast Guard must be fluent in each of these languages. Even looking at just the relationship with the Department of Defense, clearly room for improvement exists. While the Coast Guard does have billets on certain DOD staffs ā particularly combatant commanders including NORTHCOM and CENTCOM and certain U.S. Navy commands ā those billets are neither held in much prestige nor sought after. While members of the other four military services are almost required to receive joint training, education, and experience (Osgood), the Coast Guard has no emphasis and no plan. Unless the service strategically emphasizes joint service and understanding, the Coast Guard may find itself unable to effectively participate in a joint environment.
Capabilities for the Joint Force
The Coast Guard does bring something to the table for the joint force, however. Five of the twenty-two mission areas are specified in a Memorandum of Agreement between the Coast Guard and the Department of Defense. (U.S. Coast Guard, p 16) These missions ā Maritime Interception Operations; Military Environmental Response Operations; Port Operations, Security, & Defense; Peacetime Military Engagement; and Coastal Sea Control Operations ā are missions that the Coast Guard is fairly well suited for. The Coast Guard brings experience working in, and assets designed for, the littoral environment. As Stubbs and Truver point out in their monograph, the Coast Guardās mandate has four fundamental elements: a humanitarian element, a policing element, a diplomatic element, and a military element. (p 54) To the joint force, the Coast Guard brings experience in all four of these fundamental elements as exhibited in her multiple missions.
The most unique capabilities the Coast Guard can bring to the table are patrol boats (87 and 110 feet, multi-mission, law-enforcement & security capable cutters) for brown water operations, port security units to provide waterborne security in a port, and tactical law enforcement teams to provide trained boarding teams capable of searching and securing commercial vessels.
When would a joint force or a combatant commander look to the Coast Guard for assets and resources? When operating in the littoral environment, in low to moderate levels of conflict, the Coast Guard can bring a wealth of experience. This is particularly true when, for political or diplomatic reasons, a maritime, military presence other than by a gray warship is desired. With experience in alien migrant operations and maritime counter-drug operations, the Coast Guard can bring relevant experience, if not expertise, to non-combatant evacuation operations and certain counter-terrorism & force protection operations.
In conclusion
The Coast Guardās Achilles Heel is her critical strength: her multi-mission focus. For the joint force, the Coast Guard can be the Leatherman** of the Littorals, able to do much in the maritime environment, perhaps not being the perfect tool, but certainly being versatile enough to be useful.
**Note: Leatherman Tools mutli-purpose tools were inspired by a young Americanās 1975 trip through Europe in a cranky Fiat. See this site
References
Collins, Jim.
From Good to Great: Why Some Companies Make the Leap and
Others Donāt. New York: Harper Collins, 2001.
Hamilton, Alexander. āLetter of Instructions to Commanding Officers of Revenue Cuttersā (4 June 1791) [1 January 2004
Osgood, John. āThe Goldwater Nichols Act – Managing the Defense Department.ā 1996. [5 January 2004
Philpott, Tom. āBeyond the Waterfront,ā Military Officer (July 2003): 50-58
Stubbs, Bruce, and Scott Truver. Americaās Coast Guard: Safeguarding U.S. Maritime Safety and Security in the 21st Century. Washington, DC: U.S. Coast Guard, 2000 [2 January 2004
U.S. Coast Guard. U.S. Coast Guard: Americaās Maritime Guardian. Coast Guard Publication 1. 2nd Printing. Washington, DC: U.S. Coast Guard, 2002.
U.S. Naval War College. āU.S. Coast Guard Doctrine and Capabilities.ā Joint Maritime Operations, AY 2003-2004, Block 3.4. Newport, RI: Naval War College, 2003