But the JIACGs have critical, even crippling, deficiencies. First, it is not possible, absent legislation, to mandate non-DOD participation. Indeed, the list of participants in the European Command JIACG as late as July 2003 was depressingly thin. As of February 2005, Central Command (CENTCOM) asserted that it conducted daily interagency coordination with the Departments of State and Treasury, the Central Intelligence Agency, the Drug Enforcement Agency, and the FBI in support of Operations Enduring Freedom and Iraqi Freedom, but it is unclear which of these were actually represented on the JIACG or how institutionalized this support actually was.21 The non-DOD agencies are usually operating on far more limited resources than the military, and the costs of JIACG participation often outweigh any perceived benefits. Second, there are strict limitations on the roles and responsibilities of the JIACGs. They cannot task civilian agency elements or personnel, reorganize civilian agency elements, prioritize the efforts of civilian elements, or unilaterally commit agency resources. They are a coordinating element only. Likewise, the Combatant Commander’s authority is “exclusively exercised over military organizations and units. [The JIACG] does not authorize or entitle the Combatant Commanders to direct the actions of those elements in theater representing non-DOD agencies, institutions, and organizations.”22 Third, and most fundamentally, the vastly differing organizational cultures of the civilian and military agencies that constitute the JIACG greatly hinder its smooth functioning. Tomlin writes that “few [non-DOD agencies] have cultures that embrace doctrinal structure, and it is often perceived as being confining and rigid. The absence of formalized procedures pertinent to interagency cooperation and interoperability can challenge and impair the JIACGs’ potential.”23 Even Joint Forces Command admits that there is a “hesitant buy-in” by the civilian agencies, who perceive “coordination” with DOD as tantamount to ceding control.24 The JIACGs have served a useful purpose; however, they are clearly not the final answer for interagency unity of effort at the strategic or operational level. “

Thompson even points to the need for flexibility in what amounts to Leviathan vs. System Administration scenarios:

“Roman proconsuls were military governors, but a “holistic understanding of the operational environment” in any AOR today would have to recognize that the military element of power will often not be predominant. Indeed, one draft “Joint Operating Concept” states, “During conflict the joint force is the ‘supported’ agency. In prevention and reconstruction operations, the joint force is the ‘supporting’ agency.”44 The Department of Defense early on took the lead in the planning and execution of the Global War on Terrorism, with the quiet acquiescence of the National Security Council. This was despite the proclamations of the President, and near universal recognition in the federal government, that the Global War on Terrorism is a multiagency effort. This was partly due to the practical reality that the resources available to DOD dwarf anything else in the US government, but it was also due to institutional habit and inertia. The Department of Treasury is not accustomed to campaign planning, but CENTCOM does it for a living. Nonetheless, success in a conflict such as the Global War on Terrorism requires that the US government break these old habits and the proconsulate system that sustains them“

Given the right kind of high-level team this model could work very well. Eisenhower, for example, was the Allied Supreme Commander in the European theater but his shadow was Robert Murphy, who managed secret diplomacy and clandestine OSS operations for Eisenhower as the personal representative of the President of the United States. In Vietnam, another good example of a ” fusion” role would have been John Paul Vann in his civilian capacity of Senior Advisor in II Corps Military Region.

However institutionalizing this model would take a considerable amount of time. ” Jointness” in planning and executing military operations took years for the armed services to reach a level of reliability. How much longer would it take to bring Treasury and the Energy Department on board or overcome the notable reluctance of State or the IC to become tightly integrated with bureaucratic behemoth that is the Pentagon ?

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