The Maxwell Papers, the Air War College's occasional papers series, focus oncurrent and future issues of interest to the Air Force and US Department of Defense.The first Maxwell Papers was published in May of 1996 with the Air UniversityCommander's signature on the foreword. Maxwell Papers are open to all interestedauthors, particularly Air War College faculty and students, but also to other officersand analysts. Maxwell Papers have been distributed to over 400 addresses includingall senior Air Force and US Department of Defense decision makers, ProfessionalMilitary Education (PME) schools, contractors, and other US agencies, and morethan 40 foreign air forces and institutions. This document is a Air War CollegeMaxwell Paper.