Few federal posts carry the prestige of the Secretary of the Navy, and as Harold Brown once observed, many aspire to it. Yet the position often goes to well-connected figures who may not be prepared for its demands. The experience of former Secretary John Phelan underscores how difficult it is to endure as Secretary of the Navy.
So what distinguishes an effective Secretary of the Navy? Historical examples point to a practical checklist for success.
Secretary of the Navy: historical, geopolitical and economic grounding
A core responsibility of any Secretary of the Navy is explaining the Navy’s purpose to Congress and the public when seeking resources. That requires a grasp of why the United States is a maritime nation and how its security and economy depend on sea lines of communication.
A Secretary of the Navy need not quote Alfred Thayer Mahan as Theodore Roosevelt once did, but should understand the lessons of history and the conditions for sea power, including the importance of steady political leadership.
Secretary of the Navy: familiarity with the sea services
Firsthand experience in the Navy or Marine Corps, in uniform or as a civilian, is a clear advantage. Understanding the distinct communities within the services and how each advances national interests is essential.
Gideon Welles’s logistics background before the Civil War helped him expand the fleet to enforce the blockade. By contrast, newcomers who need time to learn the institution’s complexities often struggle to make timely changes.
Secretary of the Navy: adept bureaucratic leadership
Efforts to shift the Navy’s direction can meet resistance from uniformed leaders and career officials. Many pivotal naval innovations emerged when civilian leaders challenged entrenched views.
Graham Claytor, serving under President Jimmy Carter, persuaded the Pentagon not to confine the Navy to a defensive posture and successfully countered Adm. Hyman Rickover’s attempts to shape nuclear policy through Congress. When required, Secretaries should exercise civilian authority, as Paul Nitze did when he removed an admiral who tried to undercut him by telling employees that Secretaries “come and go.”
Secretary of the Navy: private-sector experience
Experience with competitive markets, finance, and industrial production equips leaders to apply best practices to the defense-industrial base. James Forrestal recognized during World War II that the Navy’s legacy procurement system could not meet wartime demands.
As Under Secretary, over the objections of Chief of Naval Operations Ernest J. King, he created a new office to manage billions in contracts and align naval procurement with the needs of other services rearming at the same time.
Secretary of the Navy: credibility on Capitol Hill
Political engagement is indispensable. A Secretary of the Navy must spend substantial time building relationships in Congress, making the case for the service’s needs, and demonstrating a credible plan to address gaps.
Josephus Daniels, who served under President Woodrow Wilson, outmaneuvered admirals who sought to leverage Congress to dilute the Secretary’s authority, not through open confrontation in every instance but by ensuring lawmakers trusted his judgment most.
Secretary of the Navy: backing from the Pentagon and the White House
Authority ultimately depends on support from the Secretary of Defense and the President. Without their protection, a Secretary can quickly become mired in challenges.
During the Reagan administration, one Secretary, despite not having a close personal bond with President Ronald Reagan or Secretary of Defense Caspar Weinberger, remained effective because his policies clearly advanced the administration’s strategy and because the defense secretary delegated significant authority to service secretaries rather than micromanaging.
Applying the checklist to today
These qualities may soon be tested with the Trump administration’s nomination of Hung Cao to lead the department. Cao brings substantial military experience, strong relationships with key administration figures, a record of tackling difficult assignments, willingness to weather controversy, an ability to learn quickly, and a reputation for loyalty to colleagues.
If he continues to grow and adds the remaining attributes described here, he could be well positioned to succeed in an uncertain environment. Time will tell.
Whatever the outcome of the nomination, success for any Secretary of the Navy rests on a blend of talent, experience, and circumstance. With the Navy facing its most demanding period since the end of the Cold War, the department needs a leader with the right skills, credibility, and even a measure of charm to set a steady course.
John Lehman served as Secretary of the Navy from 1981 to 1987. Anand Toprani is a Jeane Kirkpatrick Fellow at the American Enterprise Institute and author of The Man in the Middle: John Lehman, Naval Power, and the End of the Cold War (Stanford University Press, 2027).