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Gates also used the report to continue his drumbeat for the use of more ''soft power'' to defeat terrorism, which includes the greater use of civilians in areas such as political development, communications and training.

As an example, he said that civilian response teams set up through the State Department will pay off, if they are properly supported. Gates has called for the creation of new government organizations, including a permanent group of civilian experts with a wide range of expertise who could be sent abroad on short notice as a supplement to U.S. military efforts.

''Military strength alone will not provide security,'' he said in the report.

In other comments, Gates noted the Pentagon is increasing the size of the Army and Marine Corps, investing in new equipment to replace war losses, and funding improved technologies -- from fighter jets to more advanced Navy ships.

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