In my humble opinion, I'd say the paper is an introduction into how societys are built, structured and evolve, for soldiers who are asked to reengineer societies. In my opinion, on a meta level, it strongly implies that societies are so fricken complicated that maybe soldiers shouldn't be asked to reengineer them - which you picked up on - by that is somewhat irrelevant since soldiers are being asked to reengineer them regardless of what I may think.