THE INTERAGENCY AND COUNTERINSURGENCY WARFARE: STABILITY, SECURITY, TRANSITION, AND RECONSTRUCTION ROLES Editors Joseph R. Cerami Jay W. Boggs December 2007 Visit our website for other free publication downloads http://www.StrategicStudiesInstitute.army.mil/ To rate this publication click here. This publication is a work of the U.S. Government as defined in Title 17, United States Code, Section 101. As such, it is in the public domain, and under the provisions of Title 17, United States Code, Section 105, it may not be copyrighted. ***** The views expressed in this report are those of the authors and do not necessarily reflect the official policy or position of the Department of the Army, the Department of Defense, or the U.S. Government. 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ISBN 1-58487-332-9 ii CONTENTS Foreword Professor Douglas C. Lovelace, Jr. ............................... vii Preface LTG Richard A. Chilcoat, USA-Ret. .............................ix Introduction Jay W. Boggs....................................................................1 I. Issues and Challenges in Support and Stability Operations ............................................. 5 1. Challenges in Support and Stability Operations: Why Each One is Different Dennis C. Jett...............................................................7 2. Presidential Decision Directive-56: A Glass Half Full John F. Troxell ...........................................................25 3. A “Peace Corps with Guns”: Can the Military Be a Tool of Development? H. Allen Irish ............................................................ 53 II: Case Studies and Field Experiences ........................97 4. The Perils of Planning: Lessons from Afghanistan and Iraq Joseph J. Collins...........................................................99 5. U.S. Provincial Reconstruction Teams in Afghanistan, 2003-2006: Obstacles to Interagency Cooperation Carlos Hernandorena................................................121 iii 6. The Interagency Process in Reconstruction of Post-World War II Japan Katherine Rogers ......................................................171 7. An Alternative View: Sri Lanka’s Experience with an Enduring Insurgency Patrick B. Baetjer ......................................................209 III: Learning, Innovation, and New Initiatives...................................................................267 8. The Exquisite Problem of Victory: Measuring Success in Unconventional Operations James J. Wirtz............................................................269 9. The Failure of Incrementalism: Interagency Coordination Challenges and Responses Scott R. Feil .............................................................285 10. Interagency Reform: An Idea Whose Time Has Come Robert B. Polk .........................................................317 11. Strategic Communication: Interagency Rhetoric and Consistent Interpretation Amanda Smith..........................................................337 IV: Leadership, Education, Training, and Development for Interagency Operations.....................................387 12. Bridging the Gap: Integrating Civilian- Military Capabilities in Security and Reconstruction Operations Robert H. Dorff .........................................................389 13. Training, Education, and Leader Development for the National Security Interagency James M. Smith.........................................................407 iv 14. Leadership Education and Training for the Interagency Brian Polley .............................................................423 15. The Influence of Stability Operations on the Army Profession and Public Management Chris Cline ...............................................................465 16. Counterinsurgency Doctrine FM 3-24 and Operation Iraqi Freedom: A Bottom-up Review Tyson Voelkel............................................................511 17. What Is to Be Done?: Aligning and Integrating the Interagency Process in Support and Stability Operations Joseph R. Cerami.......................................................557 Glossary ............................................................................573 Bibliography ....................................................................575 About the Contributors ..................................................589 About the George Bush School of Government and Public Service ...........................................................601 About the Strategic Studies Institute ............................603 v FOREWORD The contemporary challenges underpinning interagency cooperation within the U.S. Government are not entirely new. For decades since the formation of the defense establishment under the 1947 National Security Act, U.S. cabinet departments, national security agencies, and military services—all those involved in providing for the common defense—have struggled to overcome differences in policy and strategy formulation, organizational cultures, and even basic terminology. This new century’s post-September 11, 2001 (9/11), international system and security environment have placed additional strains on the U.S. Government’s interagency processes. U.S. military campaigns in Afghanistan, Iraq, and the greater Global War on Terrorism have confronted civilian policymakers and senior military officers with a complex, fluid battlefield which demands kinetic and counterinsurgency capabilities. This monograph addresses the security, stability, transition, and reconstruction missions that place the most pressure on interagency communication and coordination. The results from Kabul to Baghdad reveal that the interagency process is in need of reform and that a more robust effort to integrate and align civilian and military elements is a prerequisite for success. While the present volume represents a significant effort towards addressing the current interagency problems, much more discussion is required. The baseline goals of this partnership effort between the Bush School and the Strategic Studies Institute are to generate knowledgeable interaction and chart a way forward for government, private sector, and academic actors to reexamine interagency reform as a precondition for acheving real change. Such an initiative could not be more relevant or time sensitive. DOUGLAS C. LOVELACE, JR. Director Strategic Studies Institute vii PREFACE The interagency process was the focus of a Capstone project and Research Symposium at the Bush School of Government and Public Service at Texas A&M University during the 2006-07 academic year. The Bush School’s Capstone seminar is a semester-long graduate course in the Master’s Program in International Affairs that provides a research experience for students in the final semester of the 2-year program. As part of their leadership development, the students operate in teams to address an important policy issue (under the direc- tion of a faculty member) and in support of a client. In this case, the client was the Office of the Deputy Assistant Secretary of Defense for Stability Operations. Our thanks to Colonel Richard Lacquement and Dr. Janine Davidson for sponsoring our Capstone interagency project. The Capstone was entitled “The Interagency Process in Support & Stability Operations: Integrating and Aligning the Roles and Missions of Military and Civilian Agencies in Conflict and Post-Conflict Environments.” With topics ranging from provisional reconstruction teams in Afghanistan to strategic communication to leadership education, the student papers are included in this monograph, making valuable contributions to this critical dialogue. In concert with the Capstone interagency project, the Bush School and the U.S. Army War College’s Strategic Studies Institute sponsored a research symposium to outline interagency policy issues and craft recommendations. The symposium, entitled “The Interagency Process in Support and Stability Operations: The Integration and Alignment of Military and Civilian Roles and Missions,” was held ix on April 5-6, 2007, at Texas A&M University. Present were more than two dozen military officers, national security scholars, and practitioners who have been on the ground in Iraq and Afghanistan, all of whom are heavily involved in interagency analysis. The majority of the concerns, questions, and ideas discussed during the symposium are articulated and expanded upon in the following chapters. Let me thank the Director of the Strategic Studies Institute, Professor Douglas Lovelace, for sponsoring the interagency research symposium. Thanks also go to the