Institutional culture. In recent years the Army and Air Force have followed the example of the Marine Corps in posturing themselves as expeditionary warfighters. But the part of the Navy Department run by admirals doesn't really see itself that way. It views its forward-deployed aircraft carriers and submarines as instruments of foreign policy as much as combat systems -- in other words, as versatile tools in a global strategy. Because the Navy thinks strategically rather than tactically, its leaders are more comfortable with the nuances and ambiguity of political processes than warfighters in other services. So Navy leaders get along better with political appointees, ascending to the top jobs.
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