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This electronic representation of RAND intellectual property is provided for non- commercial use only. Permission is required from RAND to reproduce, or reuse in another form, any of our research documents. This product is part of the RAND Corporation monograph series. RAND monographs present major research findings that address the challenges facing the public and private sectors. All RAND mono- graphs undergo rigorous peer review to ensure high standards for research quality and objectivity. Securingor Tyrants Fostering Reform? U.S. Internal Security Assistance to Repressive and Transitioning Regimes Seth G. Jones, Olga Oliker, Peter Chalk, C. Christine Fair, Rollie Lal, James Dobbins Prepared for the Open Society Institute Approved for public release; distribution unlimited NATIONAL SECURITY RESEARCH DIVISION The research described in this report was sponsored by the Open Society Institute and was conducted under the auspices of the International Security and Defense Policy Center within the RAND National Security Research Division (NSRD). NSRD conducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the Unified Commands, the defense agencies, the Department of the Navy, the Marine Corps, the U.S. Coast Guard, the U.S. Intelligence Community, allied foreign governments, and foundations. Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN 978-0-8330-4018-3 Cover Photo by U.S. Army Cpl. Thomas Childs The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R® is a registered trademark. Cover design by Stephen Bloodsworth © Copyright 2006 RAND Corporation All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from RAND. Published 2006 by the RAND Corporation 1776 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 4570 Fifth Avenue, Suite 600, Pittsburgh, PA 15213-2665 RAND URL: http://www.rand.org/ To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: [email protected] Preface The United States has historically provided assistance to the security forces of repressive, non-democratic countries that do not share its political ideals. This assistance is intended to improve their ability to deal with threats such as terrorism and perhaps to improve human rights. The security forces in these countries are not accountable to the public, and their activities and approaches are not transparent. This practice of providing assistance to repressive states raises a number of questions, the answers to which have significant policy implications. Has U.S. assistance improved the effectiveness of internal security agencies in countering security threats? Has U.S. assistance improved the accountability and human rights records of these agencies? What is the relationship between improving security and improving accountabil- ity and human rights? This study seeks some answers to these questions. The research was funded by the Open Society Institute and was con- ducted within the International Security and Defense Policy Center of the RAND Corporation’s National Security Research Division (NSRD). NSRD conducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the defense agencies, the Department of the Navy, the Marine Corps, the U.S. CoastGuard, the U.S. Intelligence Community, allied foreign governments, and foun- dations. For more information on RAND’s International Security and Defense Policy Center, contact the Director, James Dobbins. He can be reached by email at [email protected]; by phone at 703-413-1100, extension 5134; or by mail at the RAND Corporation, 1200 South Hayes Street, Arlington, Virginia 22202. More information about RAND is available at www.rand.org. iii Contents Preface ............................................................................. iii Figures .............................................................................vii Tables .............................................................................. ix Summary .......................................................................... xi Acknowledgments ............................................................ xxiii Abbreviations ................................................................... xxv CHAPTER ONE Introduction ....................................................................... 1 CHAPTER TWO Historical Context................................................................ 9 CHAPTER THREE El Salvador ....................................................................... 23 CHAPTER FOUR Uzbekistan ........................................................................49 CHAPTER FIVE Afghanistan.......................................................................89 CHAPTER SIX Pakistan ......................................................................... 125 CHAPTER SEVEN Conclusion ...................................................................... 161 v vi Securing Tyrants or Fostering Reform? APPENDIX Training Assistance Provided to Uzbekistan, January 2001–June 2005 ................................................. 175 Bibliography .................................................................... 181 Figures 1.1. Relative Change in Effectiveness of Internal Security Forces After U.S. Assistance...................................................... 5 1.2. Relative Change in Accountability and Human Rights Practices of Internal Security Forces After U.S. Assistance .......... 5 3.1. Homicides in El Salvador, 1992–2002 ............................... 38 3.2. Public Perception of Political, Civil, and Human Rights Practices in Six Countries .............................................. 42 3.3. Public Perception of Corruption in Six Countries .................. 44 5.1. Insurgent Targets in Afghanistan, 2002–2006...................... 94 5.2. Number of Insurgent Attacks in Afghanistan, January 2002–December 2005....................................... 105 5.3. Opium Poppy Cultivation in Afghanistan, 1986–2006........... 110 5.4. Public Perception of the Rule of Law ................................ 112 5.5. Public Perception of Political, Civil, and Human Rights ......... 117 5.6. Public Perception of Corruption ..................................... 118 vii Tables 1.1. Overview of Case Studies ................................................ 3 2.1. U.S. Antiterrorism Assistance to Non-Democratic States...........17 3.1. Courses Provided to Salvadoran Security Forces, 1988–1993 ..... 28 ix Summary This report examines U.S. government assistance to the police and inter- nal security agencies of repressive and transitioning states. Throughout its history, the United States has provided assistance to a number of countries that have not shared its political ideals. Their security forces were not accountable to the public, and their practices and approaches were not transparent. The decision to provide assistance to repressive and autocratic states (and states that are, to varying extents, seeking to transition away from repression) raises a number of questions, the answers to which have significant policy implications. Can U.S. assis- tance improve the effectiveness of internal security agencies in counter- ing security threats? Has U.S. assistance improved the accountability and human rights records of these agencies? What is the relationship between improving security and improving accountability and human rights? We believe that security, human rights, and accountability are deeply interconnected. We disagree with those who argue that security interests should trump human rights in situations where states face significant security threats, such as terrorism. We also disagree with those who argue that the United States should never provide inter- nal security assistance to repressive states. Our analysis suggests that U.S. efforts to improve the security, human rights, and accountability of repressive internal security forces are often more likely to be suc- cessful when states are in