The Soldier and the State

The Theory and Politics of Civil–Military Relations

Samuel P. Huntington

• Publisher: Belknap Press
• Year: 1981
• ISBN:
  9780674238015
• Topic: Politics & International Relations
• Subtopic: Politics
• Index: Politics & International Relations

In a classic work, Samuel P. Huntington challenges most of the old assumptions and ideas on the role of the military in society. Stressing the value of the military outlook for American national policy, Huntington has performed the distinctive task of developing a general theory of civil–military relations and subjecting it to rigorous historical analysis.Part One presents the general theory of the "military profession, " the "military mind, " and civilian control. Huntington analyzes the rise of the military profession in western Europe in the eighteenth and nineteenth centuries, and compares the civil–military relations of Germany and Japan between 1870 and 1945.Part Two describes the two environmental constants of American civil–military relations, our liberal values and our conservative constitution, and then analyzes the evolution of American civil–military relations from 1789 down to 1940, focusing upon the emergence of the American military profession and the impact upon it of intellectual and political currents.Huntington describes the revolution in American civil–military relations which took place during World War II when the military emerged from their shell, assumed the leadership of the war, and adopted the attitudes of a liberal society. Part Three continues with an analysis of the problems of American civil–military relations in the era of World War II and the Korean War: the political roles of the Joint Chiefs of Staff, the difference in civil–military relations between the Truman and Eisenhower administrations, the role of Congress, and the organization and functioning of the Department of Defense. Huntington concludes that Americans should reassess their liberal values on the basis of a new understanding of the conservative realism of the professional military men.

PART I

MILITARY INSTITUTIONS AND THE STATE:
THEORETICAL AND HISTORICAL PERSPECTIVES

1

Officership as a Profession

PROFESSIONALISM AND THE MILITARY

The modern officer corps is a professional body and the modern military officer a professional man. This is, perhaps, the most fundamental thesis of this book. A profession is a peculiar type of functional group with highly specialized characteristics. Sculptors, stenographers, entrepreneurs, and advertising copywriters all have distinct functions but no one of these functions is professional in nature. Professionalism, however, is characteristic of the modern officer in the same sense in which it is characteristic of the physician or lawyer. Professionalism distinguishes the military officer of today from the warriors of previous ages. The existence of the officer corps as a professional body gives a unique cast to the modern problem of civil-military relations.

The nature and history of other professions as professions have been thoroughly discussed. Yet the professional character of the modern officer corps has been neglected. In our society, the businessman may command more income; the politician may command more power; but the professional man commands more respect. Yet the public, as well as the scholar, hardly conceives of the officer in the same way that it does the lawyer or doctor, and it certainly does not accord to the officer the deference which it gives to the civilian professionals. Even the military themselves are influenced by their image in the public mind and at times have refused to accept the implications of their own professional status. When the term “professional” has been used in connection with the military, it normally has been in the sense of “professional” as contrasted with “amateur” rather than in the sense of “profession” as contrasted with “trade” or “craft.” The phrases “professional army” and “professional soldier” have obscured the difference between the career enlisted man who is professional in the sense of one who works for monetary gain and the career officer who is professional in the very different sense of one who pursues a “higher calling” in the service of society.

THE CONCEPT OF PROFESSION

The first step in analyzing the professional character of the modern officer corps is to define professionalism. The distinguishing characteristics of a profession as a special type of vocation are its expertise, responsibility, and corporateness.¹

EXPERTISE. The professional man is an expert with specialized knowledge and skill in a significant field of human endeavor. His expertise is acquired only by prolonged education and experience. It is the basis of objective standards of professional competence for separating the profession from laymen and measuring the relative competence of members of the profession. Such standards are universal. They inhere in the knowledge and skill and are capable of general application irrespective of time and place. The ordinary skill or craft exists only in the present and is mastered by learning an existing technique without reference to what has gone before. Professional knowledge, however, is intellectual in nature and capable of preservation in writing. Professional knowledge has a history, and some knowledge of that history is essential to professional competence. Institutions of research and education are required for the extension and transmission of professional knowledge and skill. Contact is maintained between the academic and practical sides of a profession through journals, conferences, and the circulation of personnel between practice and teaching.

Professional expertise also has a dimension in breadth which is lacking in the normal trade. It is a segment of the total cultural tradition of society. The professional man can successfully apply his skill only when he is aware of this broader tradition of which he is a part. Learned professions are “learned” simply because they are an integral part of the total body of learning of society. Consequently professional education consists of two phases: the first imparting a broad, liberal, cultural background, and the second imparting the specialized skills and knowledge of the profession. The liberal education of the professional man is normally handled by the general educational institutions of society devoted to this purpose. The second or technical phase of professional education, on the other hand, is given in special institutions operated by or affiliated with the profession itself.

RESPONSIBILITY. The professional man is a practicing expert, working in a social context, and performing a service, such as the promotion of health, education, or justice, which is essential to the functioning of society. The client of every profession is society, individually or collectively. A research chemist, for instance, is not a professional man because the service he renders, while beneficial to society, is not essential to its immediate existence and functioning: only Du Pont and the Bureau of Standards have a direct and immediate interest in what he has to offer. The essential and general character of his service and his monopoly of his skill impose upon the professional man the responsibility to perform the service when required by society. This social responsibility distinguishes the professional man from other experts with only intellectual skills. The research chemist, for instance, is still a research chemist if he uses his skills in a manner harmful to society. But the professional man can no longer practice if he refuses to accept his social responsibility: a physician ceases to be a physician if he uses his skills for antisocial purposes. The responsibility to serve and devotion to his skill furnish the professional motive. Financial remuneration cannot be the primary aim of the professional man qua professional man. Consequently, professional compensation normally is only partly determined by bargaining on the open market and is regulated by professional custom and law.

The performance of an essential service not regulated by the normal expectation of financial rewards requires some statement governing the relations of the profession to the rest of society. Conflicts between the professional man and his clients, or among members of the profession, normally furnish the immediate impetus to the formulation of such a statement. The profession thus becomes a moral unit positing certain values and ideals which guide its members in their dealings with laymen. This guide may be a set of unwritten norms transmitted through the professional educational system or it may be codified into written canons of professional ethics.

CORPORATENESS. The members of a profession share a sense of organic unity and consciousness of themselves as a group apart from laymen. This collective sense has its origins in the lengthy discipline and training necessary for professional competence, the common bond of work, and the sharing of a unique social responsibility. The sense of unity manifests itself in a professional organization which formalizes and applies the standards of professional competence and establishes and enforces the standards of professional responsibility. Membership in the professional organization, along with the possession of special expertise and the acceptance of special responsibility, thus becomes a criterion of professional status, publicly distinguishing the professional man from the layman. The interest of the profession requires it to bar its members from capitalizing upon professional competence in areas where that competence has no relevance and likewise to protect itself against outsiders who would claim professional competence because of achievements or attributes in other fields. Professional organizations are generally either associations or bureaucracies. In the associational professions such as medicine and law, the practitioner typically functions independently and has a direct personal relationship with his client. The bureaucratic professions, such as the diplomatic service, possess a high degree of specialization of labor and responsibilities within the profession, and the profession as a whole renders a collective service to society as a whole. These two categories are not mutually exclusive: bureaucratic elements exist in most associational professions, and associations frequently supplement the formal structure of bureaucratic professions. The associational professions usually possess written codes of ethics since each practitioner is individually confronted with the problem of proper conduct toward clients and colleagues. The bureaucratic professions, on the other hand, tend to develop a more general sense of collective professional responsibility and the proper role of the profession in society.

THE MILITARY PROFESSION

The vocation of officership meets the principal criteria of professionalism. In practice, no vocation, not even medicine or law, has all the characteristics of the ideal professional type. Officership probably falls somewhat further short of the ideal than either of these. Yet its fundamental character as a profession is undeniable. In practice, officership is strongest and most effective when it most closely approaches the professional ideal; it is weakest and most defective when it falls short of that ideal.

THE EXPERTISE OF OFFICERSHIP. What is the specialized expertise of the military officer? Is there any skill common to all military officers and yet not shared with any civilian groups? At first glance this hardly seems to be the case. The officer corps appears to contain many varieties of specialists, including large numbers which have their counterparts in civilian life. Engineers, doctors, pilots, ordnance experts, personnel experts, intelligence experts, communications experts — all these are found both within and without the modern officer corps. Even ignoring these technical specialists, each absorbed in his own branch of knowledge, just the broad division of the corps into land, sea, and air officers appears to create vast differences in the functions performed and the skills required. The captain of a cruiser and the commander of an infantry division appear to be faced with highly different problems requiring highly different abilities.

Yet a distinct sphere of military competence does exist which is common to all, or almost all, officers and which distinguishes them from all, or almost all, civilians. This central skill is perhaps best summed up in Harold Lasswell’s phrase “the management of violence.” The function of a military force is successful armed combat. The duties of the military officer include: (1) the organizing, equipping, and training of this force; (2) the planning of its activities; and (3) the direction of its operation in and out of combat. The direction, operation, and control of a human organization whose primary function is the application of violence is the peculiar skill of the officer. It is common to the activities of the air, land, and sea officers. It distinguishes the military officer qua military officer from the other specialists which exist in the modern armed services. The skills of these experts may be necessary to the achievement of the objectives of the military force. But they are basically auxiliary vocations, having the same relation to the expertise of the officer as the skills of the nurse, chemist, laboratory technician, dietician, pharmacist, and X-ray technician have to the expertise of the doctor. None of the auxiliary specialists contained within or serving the military profession is capable of the “management of violence,” just as none of the specialists aiding the medical profession is capable of the diagnosis and treatment of illness. The essence of officership is embodied in the traditional admonition to Annapolis men that their duty will be to “fight the fleet.” Individuals, such as doctors, who are not competent to manage violence but who are members of the officer corps are normally distinguished by special titles and insignia and are excluded from positions of military command. They belong to the officer corps in its capacity as an administrative organization of the state, but not in its capacity as a professional body.

Within the profession itself there are specialists in the management of violence on sea, on land, and in the air, just as there are heart, stomach, and eye specialists within medicine. A military specialist is an officer who is peculiarly expert at directing the application of violence under certain prescribed conditions. The variety of conditions under which violence may be employed and the different forms in which it may be applied form the basis for subprofessional specialization. They also form the basis for evaluating relative technical competence. The larger and more complex the organizations of violence which an officer is capable of directing, and the greater the number of situations and conditions under which he can be employed, the higher is his professional competence. A man who is capable of directing only the activities of an infantry squad has such a low level of professional ability as to be almost on the border line. A man who can manage the operations of an airborne division or a carrier task force is a highly competent professional. The officer who can direct the complex activities of a combined operation involving large-scale sea, air, and land forces is at the top of his vocation.

It is readily apparent that the military function requires a high order of expertise. No individual, whatever his inherent intellectual ability and qualities of character and leadership, could perform these functions efficiently without considerable training and experience. In emergencies an untrained civilian may be capable of acting as a military officer at a low level for a brief period of time, just as in emergencies the intelligent layman may fill in until the doctor arrives. Before the management of violence became the extremely complex task that it is in modern civilization, it was possible for someone without specialized training to practice officership. Now, however, only the person who completely devotes his working hours to this task can hope to develop a reasonable level of professional competence. The skill of the officer is neither a craft (which is primarily mechanical) nor an art (which requires unique and nontransferable talent). It is instead an extraordinarily complex intellectual skill requiring comprehensive study and training. It must be remembered that the peculiar skill of the officer is the management of violence not the act of violence itself. Firing a rifle, for instance, is basically a mechanical craft; directing the operations of a rifle company requires an entirely different type of ability which may in part be learned from books and in part from practice and experience. The intellectual content of the military profession requires the modern officer to devote about one-third of his professional life to formal schooling, probably a higher ratio of educational time to practice time than in any other profession. In part this reflects the limited opportunities of the officer to acquire practical experience at the most important elements of his vocation. But to a large degree it also reflects the extreme complexity of the military expertise.

The peculiar skill of the military officer is universal in the sense that its essence is not affected by changes in time or location. Just as the qualifications of a good surgeon are the same in Zurich as they are in New York, the same standards of professional military competence apply in Russia as in America and in the nineteenth century as in the twentieth. The possession of a common professional skill is a bond among military officers cutting across other differences. The vocation of the officer also possesses a history. The management of violence is not a skill which can be mastered simply by learning existing techniques. It is in a continuous process of development, and it is necessary for the officer to understand this development and to be aware of its main tendencies and trends. Only if he is aware of the historical development of the techniques of organizing and directing military forces can the officer expect to stay on top of his profession. The importance of the history of war and military affairs receives sustained emphasis throughout military writings and military education.

The military skill requires a broad background of general culture for its mastery. The methods of organizing and applying violence at any one stage in history are intimately related to the entire cultural pattern of society. Just as law at its borders merges into history, politics, economics, sociology, and psychology, so also does the military skill. Even more, military knowledge also has frontiers on the natural sciences of chemistry, physics, and biology. To understand his trade properly, the officer must have some idea of its relation to these other fields and the ways in which these other areas of knowledge may contribute to his own purposes. In addition, he cannot really develop his analytical skill, insight, imagination, and judgment if he is trained simply in vocational duties. The abilities and habits of mind which he requires within his professional field can in large part be acquired only through the broader avenues of learning outside his profession. The fact that, like the lawyer and the physician, he is continuously dealing with human beings requires him to have the deeper understanding of human attitudes, motivations, and behavior which a liberal education stimulates. Just as a general education has become the prerequisite for entry into the professions of law and medicine, it is now also almost universally recognized as a desirable qualification for the professional officer.

THE RESPONSIBILITY OF OFFICERSHIP. The expertise of the officer imposes upon him a special social responsibility. The employment of his expertise promiscuously for his own advantage would wreck the fabric of society. As with the practice of medicine, society insists that the management of violence be utilized only for socially approved purposes. Society has a direct, continuing, and general interest in the employment of this skill for the enhancement of its own military security. While all professions are to some extent regulated by the state, the military profession is monopolized by the state. The skill of the physician is diagnosis and treatment; his responsibility is the health of his clients. The skill of the officer is the management of violence; his responsibility is the military security of his client, society. The discharge of the responsibility requires mastery of the skill; mastery of the skill entails acceptance of the responsibility. Both responsibility and skill distinguish the officer from other social types. All members of society have an interest in its security; the state has a direct concern for the achievement of this along with other social values; but the officer corps alone is responsible for military security to the exclusion of all other ends.

Does the officer have a professional motivation?...