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EFFECTIVE LEGITIMATE Secure EFFECTIVE LEGITIMATE SECURE INSIGHTS FOR DEFENSE INSTITUTION BUILDING ALEXANDRA KERR & MICHAEL MIKLAUCIC, EDITORS Effective, Legitimate, Secure Effective, Legitimate, Secure Insights for Defense Institution Building ALEXANDRA KERR & MICHAEL MIKLAUCIC, EDITORS Center for Complex Operations Institute for National Strategic Studies National Defense University Washington, DC Opinions, conclusions, and recommendations expressed or implied within are solely those of the contributors and do not necessarily represent the views of the Defense Department or any other agency of the Federal Government. Cleared for public release; distribution unlimited. Portions of this book may be quoted or reprinted without permission, provided that a standard source credit line is included. The Center for Complex Operations at National Defense University would appreciate a courtesy copy of reprints or reviews. Cover Art: David Bollinger Layout Design: Viviana Edwards For current publications of the Center for Complex Operations, consult the CCO website at <www.cco.ndu.edu> Contents Acknowledgments .........................................................................................vii Introduction Defense Institution Building: A New Paradigm for the 21st Century .....................ix Alexandra Kerr I: Scoping the Issue 1. DIB in the Broader Security Architecture ..................................................................3 Querine Hanlon and Robert M. Perito 2. Defining the Discipline in Theory and Practice ......................................................21 Thomas W. Ross, Jr. 3. Attributes of a Democratic and Competent Defense Partner ..............................47 Dennis Blair 4. Paradoxes of Partnership ............................................................................................59 Nadia Gerspacher II: Defense Institution Building in Practice 5. Assessment and Program Design ..............................................................................75 Jeanne Giraldo 6. Strategy, Policy, and Defense Management Architecture ....................................95 Erik J. Leklem 7. Human Resources Management ..............................................................................115 Henry A. Leonard 8. Logistics .........................................................................................................................139 Michael Boomer and George Topic 9. Measuring and Evaluation .........................................................................................161 Paul Clarke and Thomas Davies III: Drawing Insights 10. The Security Governance Initiative .......................................................................183 Julie E. Chalfin and Linda Thomas-Greenfield 11. NATO and the Partnership for Peace ..................................................................201 Frank Boland 12. The British Experience in Africa and Oman ........................................................227 Dickie Davis 13. Insights from the Development Sector .................................................................245 Paul M. Bisca and Gary J. Milante IV: Lessons from the Field 14. Partnership: The Colombia–U.S. Experience .....................................................273 Michael Miklaucic and Juan Carlos Pinzón 15. Transforming Defense in Guatemala ...................................................................287 Alejandro J. Alemán 16. Lessons from Afghanistan .......................................................................................309 Jack D. Kem 17. Lessons from Iraq .....................................................................................................329 Hugh F.T. Hoffman Conclusion A Vision for the Future of Defense Institution Building ........................................359 David A. Cate, Alexandra Kerr, and Renanah Miles About the Editors ...........................................................................................................387 About the Contributors .................................................................................................389 Acknowledgments efense institution building (DIB) must be studied, understood, and refined as a discipline in order to generate the knowledge and skills necessary to effectively support partner nations in building professional defense institutions. Yet, while DDIB has grown in importance in the past two decades, the development of DIB programs at the Department of Defense (DOD) has primarily been a bottom-up effort, leaving a vacuum in top-level thinking on the issue. Despite growing knowledge and experience gained regarding DIB in recent years, there remains a gap in dedicated literature on this relatively new discipline. Aware of this gap, Thomas (“Tommy”) Ross approached the National Defense University during the summer of 2015 with the idea of developing a book devoted entirely to DIB. As the Deputy Assistant Secretary of Defense for Security Cooperation, Tommy recognized both the importance and the underutilization of DIB as a key instrument in the security assistance and cooperation toolkit, as well as the extent of untapped knowledge and expertise in the nascent DIB community. This book draws from that DIB community, as well as the relevant experience of other countries and fields, to frame the challenge of defense institution building and set out the right questions for future development of the discipline. The chapters provide context for future policy and decision making in the Pentagon, Congress, and the armed services; they draw from and add to the security sector reform community, and their insights provide a base upon which those undertaking security cooperation and security assistance activities can further develop this crucial element of U.S. national security. The insights will also serve DIB partner and allied countries, as they too navigate the process of building effective defense institutions. Many individuals contributed to this volume. The authors not only wrote the chapters, but participated in workshops and conversations, sharing insights and experience from the ground that were instrumental in shaping the volume’s content. Our sincerest thanks to Alex Alemán, Paul Bisca, Dennis Blair, Frank Boland, Mike Boomer, Dave Cate, Julie Chalfin, Paul Clarke, Tom Davies, Dickie Davis, Nadia Gerspacher, Jeanne Giraldo, Querine Hanlon, Tim Hoffman, Jack Kem, Erik Leklem, Chip Leonard, Gary Milante, Renanah Miles, Robert Perito, Juan Carlos Pinzón, Tommy Ross, Linda Thomas- Greenfield, and George Topic. We owe a special debt of gratitude to Dave Cate, Jeanne Giraldo, and George Topic for their expert insights throughout the process. The volume also benefitted from meetings that brought together experts from a variety of sectors, in addition to the authors, to discuss the concept of DIB in depth and share perspectives and experiences. We are especially grateful to those experts in the broader DIB community who attended workshops on DIB and to those that kindly agreed to discuss various aspects of security assistance and defense institution building in order vii to help shape the volume, including: Luis Bitencourt, Alejandra Bolanos, Scott Buchanan, John F. Kelly, James Lowe, Steven Peterson, Tiffany Petros, and James Schear. Our thanks also to Brian Chappell who provided valuable support and much appreciated humor throughout the project’s development. The editors and the Center for Complex Operations are especially grateful to our interns, Christopher Johnson for his outstanding research and editorial input, and Clark Frye, Kelsey Patterson and Zaira Pirzada for their dedication and astute assistance in helping marshal this volume to its conclusion. Our thanks also to Viviana Edwards for laying the book out. Finally, Tommy Ross has proven himself a thought leader in this field, and we are grateful for his collaboration throughout. His recognition of the importance of DIB has helped to distinguish it as a discipline and elevated it to a major element of DOD’s approach to security cooperation. —Alexandra Kerr & Michael Miklaucic viii Introduction Defense Institution Building: A New Paradigm for the 21st Century Alexandra Kerr oday, the United States faces a security paradox. On the one hand, the U.S. military is unrivaled in size, strength, capacity, and budget; on the other hand, the global operating environment of the 21st century is diffuse and complex. Beyond the rise Tof geopolitical challenges from China, Iran, North Korea, and Russia, threats to the United States are increasingly unpredictable and often asymmetrical. From terrorist groups that thrive in the absence of strong governance to transnational criminal networks unhindered by state borders, such challenges stipulate that no single nation, regardless of its traditional military might, can completely address its security objectives alone. The United States is no exception. Developing a network of competent partners that can share the burdens and responsibilities of global security, embracing a strategy of coalition and cooperation, is therefore vital to U.S. interests. In the contemporary context, however, many partner countries lack the capacity to defend their own populations and borders, never mind the capabilities necessary to contribute meaningfully to international coalitions, peacekeeping operations, or shared security goals with other countries. At a time when tangential conflicts and threats originating far from the U.S. homeland frequently have direct consequences for the United States,
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