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All RAND mono - graphs undergo rigorous peer review to ensure high standards for research quality and objectivity. 3FQPSUFST POUIF #BUUMFGJFME 4HE%MBEDDED0RESS3YSTEM IN(ISTORICAL#ONTEXT #HRISTOPHER0AULs*AMES*+IM !PPROVEDFORPUBLICRELEASEDISTRIBUTIONUNLIMITED 4HE2!.$#ORPORATIONISANONPROFITRESEARCHORGANIZATIONPROVIDING OBJECTIVEANALYSIS AND EFFECTIVE SOLUTIONS THATADDRESS THE CHALLENGES FACING THEPUBLIC AND PRIVATE SECTORS AROUND THE WORLD 2!.$S PUBLICATIONSDONOTNECESSARILYREFLECTTHEOPINIONSOFITSRESEARCHCLIENTS ANDSPONSORS  ® ISAREGISTEREDTRADEMARK Ú#OPYRIGHT2!.$#ORPORATION !LL RIGHTS RESERVED .O PART OFTHIS BOOKMAY BE REPRODUCED IN ANY FORM BY ANY ELECTRONIC ORMECHANICAL MEANS INCLUDING PHOTOCOPYING RECORDINGORINFORMATION STORAGE AND RETRIEVAL WITHOUT PERMISSION IN WRITINGFROM2!.$ 0UBLISHEDBYTHE2!.$#ORPORATION -AIN3TREET0/"OX3ANTA-ONICA#! 3OUTH(AYES3TREET!RLINGTON6! .ORTH#RAIG3TREET3UITE0ITTSBURGH0! 2!.$52,HTTPWWWRANDORG 4OORDER2!.$DOCUMENTSORTOOBTAINADDITIONALINFORMATIONCONTACT $ISTRIBUTION3ERVICES4ELEPHONE &AX%MAILORDER RANDORG ,IBRARYOF#ONGRESS#ATALOGINGIN0UBLICATION$ATA 0AUL#HRISTOPHERn   2EPORTERSONTHEBATTLEFIELDTHEEMBEDDEDPRESSSYSTEMINHISTORICALCONTEXT  #HRISTOPHER0AUL*AMES*+IM   PCM   )NCLUDESBIBLIOGRAPHICALREFERENCES   h-'v   )3".PBK   7AR0RESSCOVERAGE)RAQ7AR0RESSCOVERAGE)+IM*AMES*  ))4ITLE  0.70  gDC  #OVERDESIGNBY3TEPHEN"LOODSWORTH 4HISREPORTRESULTSFROMTHE2!.$#ORPORATIONSCONTINUINGPROGRAMOF SELFINITIATEDRESEARCH3UPPORTFORSUCHRESEARCHISPROVIDEDINPARTBY DONORSANDBYTHEINDEPENDENTRESEARCHANDDEVELOPMENTPROVISIONSOF 2!.$SCONTRACTSFORTHEOPERATIONOFITS53$EPARTMENTOF$EFENSE FEDERALLYFUNDEDRESEARCHANDDEVELOPMENTCENTERS iii Preface While the history of relations between the press and the military pre- dates modern journalism, much of what had gone before was neu- tralized by the horrible press-military breakdown that occurred dur- ing U.S. involvement in Vietnam. By the end of the Vietnam War, press-military trust was at an all time low, and antagonism on both sides at an all time high. Many in the press, feeling repeatedly misled, reported ongoing events in an unfavorable light; many in the military felt betrayed by this “inappropriate” and negative press coverage and wanted to have nothing further to do with the press. Following Viet- nam, the tension between First Amendment protections, generally accepted citizen “right to know,” and military resistance and desire for operational secrecy has led press-military relations through several different institutional forms. First, the complete exclusion of the press from the intervention in Grenada, followed by the better but less- than-satisfactory “press pool” systems used in Panama and during the first Gulf War, and the “turning of the tables” in Haiti and Somalia, where the press was in country before the troops, concluding (for the present) with the “embedded press” system, in which journalists are attached to, and travel with specific military units. The embedded press system appears to be the best solution to date at balancing the needs of the three core constituencies (the press, the military, and the public); the questions remain whether that appearance is correct, what improvements remain to be made, and what, if any, vulnerabili- ties (for any of the constituents) the embedded press system creates. iv Reporters on the Battlefield: The Embedded Press System in Historical Context This research focuses on the embedded press system deployed during Operation Iraqi Freedom and should be of interest to those in the armed forces, the media, policymakers responsible for regulating press access, as well as the public at large. It attempts to answer the following questions: How effective was the embedded press system in meeting the needs of the three main constituencies (the press, the military, and the citizens of the United States)? What policy history led to the innovation of an embedded press system? Where are press- military relations likely to go in the future? These questions are an- swered through an evaluation of the embedded press system, a set of lessons learned from press-military relations during the recent con- flict, and an analysis of the strengths and weaknesses of the embedded press system (or its descendants) for possible future operations. This research was conducted within the International Security and Defense Policy Center (ISDP) of the National Security Research Division (NSRD), a unit of the RAND Corporation. NSRD con- ducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the Unified Commands, the defense agencies, the De- partment of the Navy, the U.S. intelligence community, allied for- eign governments, and foundations. This book results from the RAND Corporation’s continuing program of self-initiated research. Support for such research is pro- vided, in part, by donors and by the independent research and devel- opment provisions of RAND’s contracts for the operation of its U.S. Department of Defense federally funded research and development centers. For more information on the RAND International Security and Defense Policy Center, contact the director, James Dobbins. He can be reached at James_Dobbins@rand.org; 310-393-0411, ext. 5134; RAND Corporation, 1700 Main Street, Santa Monica, California 90407-2138. v Contents Preface iii Figures ix Tables xi Summary xiii Acknowledgments xxiii CHAPTER ONE Introduction 1 The Origins of “Embedded Press” 1 Defining the Key Constituencies in Military-Press Relations 3 Methods 4 Significance of this Research 5 Structure of the Book 6 CHAPTER TWO The Relationship Between the Press and the Military: A Starting Point 7 The Press 8 Mission Focus: Reporting 8 Institutional Characteristics 10 Press Goals for News Coverage 14 The Military 17 Mission Focus: Protection and Defense of the United States 18 Institutional Characteristics 18 Military Goals Related to News Coverage 21 vi Reporters on the Battlefield: The Embedded Press System in Historical Context Comparison of the Press and the Military 26 Goals of the Press or Military Vis-à-Vis the Public 28 The Public’s Goals for News Coverage 29 Press-Military Relations 30 Conclusion 34 CHAPTER THREE History of Relations Between the Press and the Military 35 Case Studies: The Legacies of History 36 Vietnam: A Critical Juncture in Press-Military Relations and a Massive Legacy of Mistrust 36 Grenada: Backlash Against the Press 39 Panama: Press Pool Doesn’t Work 40 First Gulf War: Coverage But Not Access 42 Somalia: The Press Turns the Tables 46 Haiti: Prelude to Cooperation 47 Bosnia and Kosovo: Proto–Embedded Press System 48 Afghanistan: Special Forces Are Hard to Cover 50 Major Combat Operations in Iraq: The Triumph of Embedded Press 51 Observations 57 CHAPTER FOUR Systems for Press Access and Measures for Evaluating Outcomes 63 Systems for Organizing Military-Press Relations 64 Access Strategies for Organizing Press-Military Relations 64 Operational Security Strategies 68 Summary of Systems for Organizing Military-Press Relations 70 Implementation of Systems for Managing Press-Military Relations 72 Measures for Evaluating the Embedded Press System 74 CHAPTER FIVE Preliminary Evaluations of the Embedded Press and Other Systems for Organizing Press-Military Relations 77 The Embedded Press System 78 Military Goals and Measures 78 Contents vii Press Goals and Measures 83 Public Goals and Measures 89 Comparison of Embedded Press and Other Systems for Organizing Press-Military Relations 91 Military Goals and Measures 91 Press Goals and Measures 95 Public Goals and Measures 96 Implications for Coverage of Future Conflicts 98 The Consequences of Different Contexts on Press-Military Relations 100 Legacies of Previous Conflicts 100 Technology 101 Planning and Lead Time 101 Nature of the Operation 102 Quality of Opposition 104 The Value of Victory 105 The Price of Failure 106 Conclusion 108 CHAPTER SIX The Future of Embedded Press 109 Widespread Applause 110 Possible Shortcomings 110 The Embedded Press System Created a Hierarchy of Credentials 111 The “Soda-Straw” View of War 111 Loss of Objectivity 112 Technology and the Consequences of the 24-Hour News Cycle 113 Professionalism and Preparation of the Media 114 Suggestions for Future Research 114 APPENDIX A. The Public’s “Right to Know” 117 B. Outcomes and Measures of the Embedded Press System 123 Bibliography 139 [...]... foundational issues relevant to the relationship between the press and the military We begin by describing the missions of the two institutions as well as the respective mission-related goals and institutional characteristics of each We then focus on the goals of each institution for wartime news coverage A discussion of these goals allows us to make several observations on the relationship between the. .. that reporters constituted a fourth branch of Parliament.6 The notion of the press as the 4th Estate has continued relevance in the context of the contemporary United States, in that the press, although not a formal part of the government, continues to play an important role for democracy by reporting on the process and outcomes of the government Another broad goal relating to the press’s mission is the. .. public relations for the military Perhaps the only exception was negative coverage during xviii Reporters on the Battlefield: The Embedded Press System in Historical Context the second week of the war News coverage of the major combat operations phase was carried out with far fewer press complaints than seen in previous major conventional operations, such as those in Grenada, Panama, and the first Gulf... relationship between the press and the military The chapter concludes by considering the relationship of the press and the military vis-à-vis the third core constituency, the public The Press Mission Focus: Reporting Obviously, the main mission of the press is to collect, edit, and report the news.4 This role has its foundation in the First Amendment right 3 Steger, 4 “Slicing the Gordian Knot,” p 957... working definition of the press in Chapter One, we wish to briefly highlight the contribution of the singular work of Michael Schudson on the nature of news and of the press (Schudson, Michael, The Power of News, Cambridge, Mass.: Harvard University Press, 1995) Schudson’s discussion of the press contains several key points that have contributed to our understanding of military-press relations, the most important... At their worst the military wraps itself in the flag and the media wrap themselves in the First Amendment and neither party listens to the other — Peter Andrews1 Numerous scholars begin their discussion of press-military relations from the premise that the two institutions are inherently different in both their nature and goals.2 Although some of the more nuanced analyses recognize the contribution... between the military and the press with regard to the dissemination of information during wartime: While the military is focused chiefly on preventing information of value from falling into enemy hands, the press aims to broadcast the full story to the public To examine the role of the embedded press, we have constructed an evaluative framework that considers the goals of the press, the military, and the. .. because they identify too closely with the soldiers with whom they are embedded Given the myriad pressures and possible sources of bias that are brought to bear on reporters every day, we did not find the potential bias inherent in xxii Reporters on the Battlefield: The Embedded Press System in Historical Context the embedding process to be of great concern; however, further research may be warranted • The. .. this relationship experienced a significant shift during the Vietnam War, as news cov- xvi Reporters on the Battlefield: The Embedded Press System in Historical Context erage critical of both the war and the military engendered tensions The legacy of these tensions significantly influenced press-military relations in later operations in Grenada and Panama Another notable shift occurred during the first... thing is that he have a tongue which others will listen to; this and nothing more is requisite 10 Reporters on the Battlefield: The Embedded Press System in Historical Context related concerns have been shown to have an impact on story selection,7 format decisions,8 and presentation of news content.9 Some scholars take the cynical stance that the profit motive is the sole goal of the press, 10 but we . during xviii Reporters on the Battlefield: The Embedded Press System in Historical Context the second week of the war. News coverage of the major combat op- erations. Coverage 21 vi Reporters on the Battlefield: The Embedded Press System in Historical Context Comparison of the Press and the Military 26 Goals of the Press