There is a strategy problem in the Navy. Take as primary evidence that only three and a half years after completing A Cooperative Strategy for 21st Century Seapower , its primary author is now in favor of crafting a new strategy. 1 That strategy was published only four years after its predecessor, Seapower 21 . And that one came eight years after Forward . . . from the Sea , which itself was a two-year tune-up of From the Sea , which replaced the 1986 Maritime Strategy . In other words, the Navy has changed its strategy five times in 25 years—while its mission has remained unchanged for more than five decades.