PRISM❖ Vol. 2, no. 3 06/2011 PRISM Vol. 2, no. 3 2, no. Vol. ❖ 06/2011 www.ndu.edu A JOURNAL OF THE CENTER FOR COMPLEX OPERATIONS PRISM ABOUT CENTER FOR COMPLEX OPERATIONS (CCO) CCO WAS ESTABLISHED TO: PRISM is published by the National Defense University Press for the Center for ❖❖ Serve as an information clearinghouse and knowledge Enhancing the U.S. Government’s Ability to manager for complex operations training and education, PUBLISHER Complex Operations. PRISM is a security studies journal chartered to inform members of U.S. Federal agencies, allies, and other partners on complex and Prepare for Complex Operations acting as a central repository for information on areas Dr. Hans Binnendijk integrated national security operations; reconstruction and nation-building; such as training and curricula, training and education pro- CCO, a center within the Institute for National Strategic relevant policy and strategy; lessons learned; and developments in training and vider institutions, complex operations events, and subject EDITOR AND RESEARCH DIRECTOR Studies at National Defense University, links U.S. education to transform America’s security and development apparatus to meet matter experts Government education and training institutions, including Michael Miklaucic tomorrow’s challenges better while promoting freedom today. related centers of excellence, lessons learned programs, ❖❖ Develop a complex operations training and education com- and academia, to foster unity of effort in reconstruction munity of practice to catalyze innovation and development DEVELOPMENTAL EDITOR and stability operations, counterinsurgency, and irregular of new knowledge, connect members for networking, share Melanne A. Civic, Esq. COMMUNICATIONS warfare—collectively called “complex operations.” existing knowledge, and cultivate foundations of trust and The Department of Defense, with support from the habits of collaboration across the community Constructive comments and contributions are important to us. Direct MANAGING EDITOR State Department and U.S. Agency for International communications to the link on the NDU Press Web site (ndupress.ndu.edu) or ❖❖ Serve as a feedback and information conduit to the Office Dr. Jeffrey D. Smotherman Development, established CCO as an innovative write to: of the Secretary of Defense and broader U.S. Government interagency partnership. policy leadership to support guidance and problem-solving CONTRIBUTING EDITOR Editor, PRISM across the community of practice David C. Becker National Defense University Press ❖❖ Enable more effective networking, coordination, and 260 Fifth Avenue (Building 64, Room 3605) synchronization to support the preparation of Depart- PRODUCTION SUPERVISOR Fort Lesley J. McNair Washington, DC 20319 ment of Defense and other U.S. Government personnel Tara J. Parekh for complex operations Telephone: ❖❖ Support lessons learned processes and best practices COPY EDITORS (202) 685-3442 compilation in the area of complex operations Dr. John J. Church FAX: Calvin B. Kelley (202) 685-3581 ❖❖ Identify education and training gaps in the Department of Email: [email protected] George C. Maerz Defense and other Federal departments and agencies and PRISM online: ndupress.ndu.edu Lisa M. Yambrick facilitate efforts to fill those gaps. INTERNET PUBLICATIONS EDITOR CONTRIBUTIONS Visit the CCO Web site at: http://ccoportal.org Joanna E. Seich PRISM welcomes submission of scholarly, independent research from security ADVISORY BOARD policymakers and shapers, security analysts, academic specialists, and civilians Dr. Gordon Adams from the United States and abroad. Submit articles for consideration to the address Dr. Pauline H. Baker above or by email to [email protected] with “Attention Submissions Editor” in the Ambassador Rick Barton subject line. For further information, see the guidelines on the NDU Press Web site Dr. Joseph J. Collins (ex officio) at ndupress.ndu.edu. Ambassador James F. Dobbins Ambassador John E. Herbst (ex officio) NDU Press is the National Defense University’s cross-component, professional LtCol Frank G. Hoffman, USMCR (Ret.) military and academic publishing house. It publishes books, policy briefs, occasional papers, monographs, and special reports on national security strategy, defense policy, Dr. David Kilcullen national military strategy, regional security affairs, and global strategic problems. Ambassador Jacques Paul Klein Dr. Roger B. Myerson This is the authoritative, official U.S. Department of Defense edition ofPRISM . Any Dr. Moisés Naim copyrighted portions of this journal may not be reproduced or extracted without MG William L. Nash, USA (Ret.) permission of the copyright proprietors. PRISM should be acknowledged whenever Dr. William Reno material is quoted from or based on its content. Dr. James A. Schear Dr. Joanna Spear Please visit NDU Press and PRISM online at ndupress.ndu.edu for more on upcoming Subscriptions for individuals: http://bookstore.gpo.gov Dr. Ruth Wedgwood issues, an electronic archive of PRISM articles, and access to other publications. The opinions, conclusions, and recommendations expressed or implied within are those of the contributors and do not necessarily reflect the views of the Department ISSN 2157–0663 of Defense or any other agency of the Federal Government. TITLE FEATURES 3 Forging a Comprehensive Approach to Counterinsurgency Operations by Robert L. Caslen, Jr., and Bradley S. Loudon 15 Terrorist-Criminal Pipelines and Criminalized States: Emerging Alliances by Douglas Farah 33 Criminal Insurgency in the Americas and Beyond ndupress.ndu.edu by Robert Killebrew 53 Law Enforcement Capacity-building in African Postconflict Communities by Bruce Baker 65 International Support for State-building: Flawed Consensus by Stephen D. Krasner 75 Irregular Conflict and the Wicked Problem Dilemma: Strategies of Imperfection by Franklin D. Kramer 101 Three Lessons from Contemporary Challenges to Security by Max G. Manwaring 115 Five Missteps in Interagency Reform—And What to Do About Them by James Jay Carafano FROM THE FIELD 125 Stability Operations: From Policy to Practice by James W. Derleth and Jason S. Alexander 137 Gangs, Netwar, and “Community Counterinsurgency” in Haiti by David C. Becker 155 The Regional Assistance Mission to the Solomon Islands by Andrew Leith LESSONS LEARNED 165 Learning While Fighting: Operational Knowledge Management That Makes a Difference by Steven Mains and Gil Ad Ariely INTERVIEW 177 An Interview with David Petraeus BOOK REVIEW 181 How Wars End: Why We Always Fight the Last Battle Reviewed by James N. Soligan PRISMPRISM 2, no. 3 FEATURES | 1 Forging a Comprehensive Approach to Counterinsurgency Operations BY ROBERT L. CASLEN, JR., AND BRADLEY S. LOUDON he United States will face a myriad of new strategic challenges and opportunities in the 21st century that will test its capability and capacity to succeed in an increasingly com- T petitive, dynamic, and uncertain operating environment. A key component to success in future stability operations will be the ability to interpret the seemingly chaotic series of weak global signals and environmental stimuli to draw logically valid connections and conclusions to recognize obstacles and opportunities in advance. Equally important will be the capability, capacity, and will to leverage the appropriate balance of national power in a coordinated, synchronized, and focused manner to mitigate risk and exploit opportunities. While resourcing will continue to be an important component in this equation, the onus is on the U.S. Government to set the conditions now to shape success in the future. The single most important prerequisite for the assured success of future stability operations will be the abil- ity to foster the conditions required to achieve a comprehensive whole-of-government approach that is forged from unity of effort and purpose across the depth and breadth of the government. Lieutenant General Robert L. Caslen, Jr., USA, is Commander of the Combined Arms Center at Fort Leavenworth, Kansas. Major Bradley S. Loudon, USA, is a Speechwriter for the Commander. PRISM 2, no. 3 FEATURES | 3 CASLEN & LOUDON This will require a cultural shift among key Globalization has served to reduce the tra- governmental stakeholders to foster an envi- ditional barriers, boundaries, and borders that ronment where mutually vested cooperation have historically isolated nation-states from and coordination are the standard, rather than events and crises in other parts of the world. the exception. Events and phenomena that have historically been contained at the national level, such as Context natural disasters and regime change, now have To offer legitimate and lasting solutions to the potential to collapse the walls of isolation this challenge, we must first examine the con- and manifest themselves with global effect. text and fabric of the current environment to Economic trends such as free trade agree- frame the issues. As the United States enters ments (for example, the North American Free the second decade of the 21st century, it faces Trade Agreement), economic unions among an uncertain future that will be strongly influ- nations (such as the European Union), and enced by the nature of tomorrow’s global oper- increased outsourcing of jobs from devel- ating environment. America’s strategic security oped to developing countries have facilitated posture will be impacted by the emergence of increased economic interdependence among several significant global trends, whose collec- nations and the distribution