Here we encounter the report’s most dangerous failing. It confuses the strategic and the operational levels of war. In fact, the report does not offer a new strategy, but a new operational-level plan. How the war is fought, i.e., by following classic counter-insurgency doctrine, is operational, not strategic.
America must find a new strategy, since the current strategy depends on an Afghan state that does not exist. But the report offers no new strategy. The passage on page 2-20 thus ends up saying, "If you don’t give us more troops, we will fail. But you shouldn’t give us more troops unless we adopt a new strategy, which we don’t have. And even if you do give us the troops we want for the new strategy we haven’t got, they will not be enough to achieve success." This reveals utter intellectual confusion.