Executive Orders

by Tom Clancy

  “SENATOR, IT’S BEEN a long day,” Tony Bretano agreed. “And it’s been rather a long couple of weeks for me, learning the ropes and meeting the people, but, you know, management is management, and the Department of Defense has been without it for quite some time. I am especially concerned with the procurement system. It takes too long and costs too much. The problem isn’t so much corruption as an attempt to impose a standard of fairness so exacting that—well, as a pedestrian example, if you bought food the way DOD is forced to buy weapons, you’d starve to death in the supermarket while trying to decide between Libby and DelMonte pears. TRW is an engineering company, and to my way of thinking, a very good one. There’s no way I could run my company like this. My stockholders would lynch me. We can do better, and I intend to see that we do.”

  “Mr. Secretary-designate,” the senator asked, “how much longer does this have to go on? We just won a war and—”

  “Senator, America has the best medical care in the world, but people still die from cancer and heart disease. The best isn’t always good enough, is it? But more than that, and more to the point, we can do better for less money. I am not going to come to you with a request for increased overall funding. Acquisition funding will have to be higher, yes. Training and readiness will be higher also. But the real money in defense goes out in personnel costs, and that is where we can make a difference. The whole department is overmanned in the wrong places. That wastes the taxpayers’ money. I know. I pay a lot of taxes. We do not utilize our people effectively, and nothing, Senator, is more wasteful than that. I think I can promise you a net reduction of two or three percent. Maybe more if I can get a handle on the acquisition system. For the latter, I need statutory assistance. There’s no reason why we have to wait eight to twelve years to field a new airplane. We study things to death. That was once meant to save money, and maybe once it was a good idea, but now we spend more money on studies than we do on real R and D. It’s time to stop inventing the wheel every two years. Our citizens work for the money we spend, and we owe it to them to spend it intelligently.

  “Most important of all, when America sends her sons and daughters into harm’s way, they must be the best-trained, best-supported, best-equipped forces we can put into the field. The fact of the matter is that we can do that and save money also, by making the system work more efficiently.” The nice thing about this new crop of senators, Bretano reflected, was they didn’t know what was impossible. He would never have gotten away with what he’d just said as recently as a year earlier. Efficiency was a concept foreign to most government agencies, not because there was anything wrong with the people, but because nobody had ever told them to do better. There was much to be said for working at the place that printed the money, but there was much to be said for eating eclairs, too, until your arteries clogged up. If the heart of America were its government, the nation would long since have fallen over dead. Fortunately, his country’s heart was elsewhere, and surviving on healthier food.

  “But why do we need so much defense in an age when—”

  Bretano cut him off again. It was a habit he’d have to break, which he knew even as he did it—but this was too much. “Senator, have you checked the building across the street lately?”

  It was amusing to see the way the man’s head jerked back, even though the aide to Bretano’s left flinched almost as badly. That senator had a vote, both on the committee and on the floor of the Senate chamber, which was still open for business now that they’d gotten the smoke out of the building. But the point got across to most of the others, and the SecDef was willing to settle for that. In due course, the chairman gaveled the session to a close, and scheduled a vote for the following morning. The senators had already made their votes clear with their praise for Bretano’s forthright and positive statement, pledging their desire to work with him in words almost as naive as his own, and with that another day ended on one place, with a new one soon to begin in another.

  NO SOONER HAD the UN resolution passed, than the first ship had sailed for the brief steam to the Iraqi port of Bushire, there to be unloaded by the huge vacuum cleaner-like structures, and from that point on, things had gone quickly. For the first morning in many years, there would be bread enough on the breakfast tables of Iraq for everyone. Morning television proclaimed the fact for all—with the predictable live shots of neighborhood bakeries selling off their wares to happy, smiling crowds—and then concluding with word that the new revolutionary government was meeting today to discuss other matters of national importance. These signals were duly copied down at PALM BOWL and STORM TRACK and passed along, but the real news that day came from another source.

  Golovko told himself that the Turkoman Premier might well have died in an accident. His personal proclivities were well known to the RVS, and vehicle accidents were hardly unknown in his country or any other—in fact, auto mishaps had been hugely disproportionate in the Soviet Union, especially those associated with drink. But Golovko had never been one to believe in coincidences of any sort, most particularly those which happened in ways and at times inconvenient to his country. It didn’t help that he had ample assets in place to diagnose the problem. The Premier was dead. There would be elections. The likely winner was obvious because the departed politician had been wonderfully effective stifling political opposition. And now also, he saw, Iranian military units were forming up for road marches to their west. Two dead chiefs of state, in such a short time, within such a short radius, both in countries bordering Iran ... no, even if it had been a coincidence, he would not have believed it. With that, Golovko changed hats—the Western aphorism—and lifted his phone.

  USS PASADENA WAS positioned between the two PRC surface-action groups, currently operating about nine miles apart. The submarine had a full load of weapons, war shots all, but for all that, it was rather like being the only cop in Times Square at midnight on New Year’s, trying to keep track of everything at the same time. Having a loaded gun didn’t amount to very much. Every few minutes he deployed his ESM mast to get a feel for the electronic signals being radiated about, and his sonar department also fed data to the tracking party in the after portion of the attack center—as many men as could fit around the chart table were busily keeping tabs on the various contacts. The skipper ordered his boat to go deep, to three hundred feet, just below the layer, so that he could take a few minutes to examine the plot, which had become far too complex for him to keep it all in his head. With the boat steadied up on her new depth, he took the three steps aft to look.

  It was a FleetEx, but the type of FleetEx wasn’t quite ... ordinarily one group played the “good guys” against the theoretical “bad guys” in the other group, and you could tell what was what by the way the ships were arrayed. Instead of orienting toward each other, however, both groups were oriented to the east. This was called the “threat axis,” meaning the direction from which the enemy was expected to strike. To the east lay the Republic of China, which comprised mainly the island of Taiwan. The senior chief operations specialist supervising the plot was marking up the acetate overlay, and the picture was about as clear as it needed to be.

  “Conn, sonar,” came the next call.

  “Conn, aye,” the captain acknowledged, taking the microphone.

  “Two new contacts, sir, designate Sierra Twenty and Twenty-one. Both appear to be submerged contacts. Sierra Twenty, bearing three-two-five, direct path and faint ... stand by ... okay, looks like a Han-class SSN, good cut on the fifty-Hertz line, plant noise also. Twenty-one, also submerged contact, at three-three-zero, starting to look like a Xia, sir.”

  “A boomer in a FleetEx?” the senior chief wondered.

  “How good’s the cut on Twenty-one?”

  “Improving now, sir,” the sonar chief replied. The entire sonar crew was in their compartment, just forward of the attack center on the starboard side. “Plant noise says Xia to me, Cap’n. The Han is maneuvering south, bearing now three-two-one, getting a blade rate ... call
its speed eighteen knots.”

  “Sir?” The operations chief made a quick, notional plot. The SSN and the boomer would be behind the northern surface group.

  “Anything else, sonar?” the captain asked.

  “Sir, getting a little complicated with all these tracks.”

  “Tell me about it,” someone breathed at the tracking table, while making another change.

  “Anything to the east?” the CO persisted.

  “Sir, easterly we have six contacts, all classified as merchant traffic.”

  “We got ’em all here, sir,” the operations chief confirmed. “Nothing yet from the Taiwan navy.”

  “That’s gonna change,” the captain thought aloud.

  GENERAL BONDARENKO DIDN’T believe in coincidences, either. More than that, the southern part of the country once known as the Union of Soviet Socialist Republics held little charm for him. His time in Afghanistan and a frantic night in Tajikistan had seen to that. In the abstract he would not have minded the total divorce of the Russian Republic from the Muslim proto-nations arrayed on his country’s southern border, but the real world wasn’t abstract.

  “So, what do you think is going on?” the general-lieutenant asked.

  “Are you briefed in on Iraq?”

  “Yes, I am, Comrade Chairman.”

  “Then you tell me, Gennady Iosefovich,” Golovko commanded.

  Bondarenko leaned across the map table, and spoke while moving a finger about. “I would say that what concerns you is the possibility that Iran is making a bid for superpower status. In uniting with Iraq, they increase their oil wealth by something like forty percent. Moreover, that would give them contiguous borders with Kuwait and the Saudi kingdom. The conquest of those nations would redouble their wealth—one may safely assume that the lesser nations would fall as well. The objective circumstances here are self-evident,” the general went on, speaking in the calm voice of a professional soldier analyzing disaster. “Combined, Iran and Iraq outnumber the combined populations of the other states by a considerable margin—five to one, Comrade Chairman? More? I do not recall exactly, but certainly the manpower advantage is decisive, which would make outright conquest or at least great political influence likely. That alone would give this new United Islamic Republic enormous economic power, the ability to choke off the energy supply to Western Europe and Asia at will.

  “Now, Turkmenistan. If this is, as you suspect, not a coincidence, then we see that Iran wishes to move north also, perhaps to absorb Azerbaijan”—his finger traced along the map—“Uzbekistan, Tajikistan, at least part of Kazakhstan. That would triple their population, add a significant resource base to their United Islamic Republic, and next, one assumes, Afghanistan and Pakistan, and we have a new nation stretching from the Red Sea to the Hindu Kush—nyet, more to the point, from the Red Sea to China, and then our southern border is completely lined with nations hostile to us.” Then he looked up.

  “This is much worse than I had been led to expect, Sergey Nikolay’ch,” he concluded soberly. “We know the Chinese covet what we have in the east. This new state threatens our southern oil fields in the Transcaucasus—I cannot defend this border. My God, defending against Hitler was child’s play compared to this.”

  Golovko was on the other side of the map table. He’d called Bondarenko for a reason. The senior leadership of his country’s military was composed of holdovers from the earlier era—but these were finally dying off, and Gennady Iosefovich was one of the new breed, battle-tested in the misbegotten Afghan War, old enough to know what battle was perversely, this made him and his peers the superiors of those whom they would soon replace—and young enough that they didn’t have the ideological baggage of the former generation, either. Not a pessimist, but an optimist ready to learn from the West, where he’d just spent over a month with the various NATO armies, learning everything he could—especially, it would seem, from the Americans. But Bondarenko was looking down at the map in alarm.

  “How long?” the general asked. “How long to establish this new state?”

  Golovko shrugged. “Who can say? Three years, perhaps two at the worst. At best, five.”

  “Give me five years and the ability to rebuild our country’s military power, and we can ... probably ... no.” Bondarenko shook his head. “I can give you no guarantee. The government will not give me the money and resources I require. It can’t. We do not have the money to spend.”

  “And then?” The general looked up, straight into the RVS chairman’s eyes.

  “And then I would prefer to be the operations officer for the other side. In the east we have mountains to defend, and that is good, but we have only two rail lines for logistical support, and that is not so good. In the center, what if they absorb all of Kazakhstan?” He tapped the map. “Look how close that puts them to Moscow. And what about alliances? With Ukraine, perhaps? What about Turkey? What about Syria? All of the Middle East will have to come to terms with this new state ... we lose, Comrade Chairman. We can threaten to use nuclear arms but what real good does that do us? China can afford the loss of five hundred million, and still outnumber us. Their economy grows strong while ours continues to stagnate. They can afford to buy weapons from the West, or better yet to license the designs to manufacture their own. Our use of nuclear arms is dangerous, both tactically and strategically, and there is the political dimension which I will leave to you. Militarily, we will be outnumbered in all relevant categories. The enemy will have superiority in terms of arms, manpower, and geographic location. Their ability to cut off the oil supply to the rest of the world limits our hope of securing foreign help—assuming that any Western nation will have such a desire in the first place. What you have shown me is the potential destruction of our country.” That he delivered this assessment calmly was the most disturbing fact of all. Bondarenko was not an alarmist. He was merely stating objective fact.

  “And to prevent it?”

  “We cannot permit the loss of the southern republics, but at the same time, how do we hold them? Take control of Turkmenistan? Fight the guerrilla campaign that would surely result? Our army is in no shape to fight that sort of war—not even one of them, and it won’t be just one, will it?” Bondarenko’s predecessor had been fired over the failure of the Red Army—the term and the thought died hard—to deal effectively with the Chechens. What should have been a relatively simple effort at pacification had advertised to the world that the Russian army was scarcely a shadow of what it had been only a few years before.

  The Soviet Union had operated on the principle of fear, they both knew. Fear of the KGB had kept the citizens in line, and fear of what the Red Army could and would do to any systematic rebellion had prevented large-scale political disturbances. But what happened when the fear went away? The Soviet failure to pacify Afghanistan, that despite the most brutal measures imaginable, had been a signal to the Muslim republics that their fear was misplaced. Now the Soviet Union was gone, and what remained was a mere shadow, and now that shadow could be erased by a brighter sun to the south. Golovko could see it on his visitor’s face. Russia didn’t have the power she needed. For all the bluster his country could still summon to awe the West—the West still remembered the Warsaw Pact, and the specter of the massive Red Army, ready to march to the Bay of Biscay—other parts of the world knew better. Western Europe and America still remembered the steel fist which they’d seen but never felt. Those who had felt it knew at once when the grip lessened. More to the point, they knew the significance of the relaxed grip.

  “What will you need?”

  “Time and money. Political support to rebuild our military. Help from the West.” The general was still staring at the map. It was, he reflected, like being the scion of a powerful capitalist family. The patriarch had died, and he was the heir to a vast fortune—only to discover that it was gone, leaving only debts. He’d come back from America upbeat, feeling that he’d seen the way, seen the future, found a way to secure his country and do
it in the proper way, with a professional army composed of long-service experts, held together by esprit de corps, proud guardians and servants of a free nation, the way the Red Army had been on its march to Berlin. But that would take years to build. As it was ... if Golovko and the RVS were right, then the best he could hope for was that his nation would rally as it had in 1941, trade space for time, as it had in 1941, and struggle back as it had in 1942-43. The general told himself that no one could see the future; that was a gift given to no man. And perhaps that was just as well, because the past, which all men knew, rarely repeated itself. Russia had been lucky against the fascists. One could not depend upon luck.

  One could depend on a cunning and unpredictable adversary. Other people could look at a map the same as he, see the distances and obstacles, discern the correlation of forces, and know that the wild card lay on another sheet of printed paper, on the other side of the globe. The classical formula was first to cripple the strong, then crush the weak, and then, later, confront the strong again in one’s own good time. Knowing that, Bondarenko could do nothing about it. He was the weak one. He had his own problems. His nation could not count on friends, only the enemies she had labored so long and so hard to create.