SMALL WARS JOURNAL FEB 4, 2010 Smallwarsjournal.Com
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VOLUME 6 NUMBER 1 SMALL WARS JOURNAL FEB 4, 2010 smallwarsjournal.com In This Issue We're Back CORDS and the Whole of Government Approach: 1 Well, we never really went away. We Vietnam, Afghanistan, and Beyond, by Richard Weitz, Ph.D. helped 332 pieces get the visibility they're Getting Past the First Cup of Tea, by J. Andrew Person 10 due by publishing them in single article format since September, 2007. But this Examining the Armed Forces of the Philippines’ 15 issue announcing some of the winners of Civil Military Operations: A Small Power Securing Military our first writing competition (see p. 5) Relevancy in Nontraditional Military Roles, by Delilah Russell marks our return to regular publishing of Clio in Combat, The Transformation of Military History 24 select works in a proper journal style. We Operations, by LTC John A Boyd, Ph.D., US Army will continue to bring you what we can when we can: news and commentary via Task Force Stryker, Network Revolution, 32 by CPT Jonathan Pan, US Army the SWJ Blog, longer pieces via the Jour- nal online, and now these regular "print" Book Review of Ben S. Malcolm's White Tigers, My Secret 40 issues, too -- at least this freely distri- War in North Korea. Reviewed by MAJ Bradford Burris buted PDF e-zine that you can print your- Haiti: Boots on the Ground Perspective, 42 self if you so choose. Look for another by Col Buck Elton, USAF edition shortly with more winners and more news about Small Wars Foundation. About the Writing About Small Wars Foreign Policy - Dave & Bill Competition, p. 5 Foundation, p. 23 column, p. 2 CORDS and the Whole of Government Approach Vietnam, Afghanistan, and Beyond by Richard Weitz, Ph.D. Grand Prize Winner, Question #2 ernment adopted a novel civil-military strategy All too often, the U.S. national security sys- that achieved remarkably rapid if limited successes tem has proven unable to integrate its diplomatic, under trying conditions. The experience offers les- military, economic, and other elements of national sons to current and future U.S. policymakers as power adequately. The weak integration, due pri- they grapple with new COIN challenges. marily to poor interagency cooperation, has pre- sented particular problems for the United States when waging counterinsurgencies. The new U.S. Background counterinsurgency field manual, FM 3-24, points Until 1968, U.S. and South Vietnamese mili- out that ―military efforts are necessary and impor- tary forces concentrated on killing the Viet Cong tant to counterinsurgency (COIN) efforts, but they (VC) insurgents and North Vietnamese combat are only effective when integrated into a compre- units present in the Republic of (South) Vietnam hensive strategy employing all instruments of na- (RVN) as well as disrupting, primarily through air tional power.‖1 strikes and ground interdiction offensives, the flow The case of the Vietnam War—sometimes of reinforcements and supplies through the Ho Chi misperceived as a counterinsurgency failure— Minh Trail from North Vietnam to the South. In shows how the United States can conduct such addition, Operation Rolling Thunder sought to in- campaigns more effectively. Confronting what until duce Hanoi to curb its support for the insurgency recently was the most extensive counterinsurgency by inflicting measured pain through aerial bom- and nation-building challenge the U.S. national bardment. Neither South Vietnamese military security community had ever faced, the U.S. gov- units nor the many American combat forces that entered after 1965 proved very adept at defeating 1 Headquarters, U.S. Department of the Army, FM 3-24: Coun- the insurgents or preventing the infiltration of reg- terinsurgency (Washington, D.C., December 15, 2006), p. 2-1. VOL. 6, NO. 1 - FEB 4, 2010 SMALL WARS JOURNAL ular North Vietnamese units and logistical support into the South. The Viet Cong regularly retained Watch for Robert Haddick's weekly the initiative and contested the control of the Gov- editorial, This Week at War. Friday ernment of (South) Vietnam (GVN) over large evenings at Foreign Policy. areas. Critics of the attrition strategy then adopted by U.S. and RVN forces called for greater efforts at MALL ARS OURNAL local area defense, aggressive small-unit patrolling S W J that relied on surprise ambushes rather than mas- Editor in Chief Dave Dilegge sive firepower, and ―pacification‖ measures to wea- Publisher Bill Nagle ken popular support for the insurgency. Small Wars Journal is published by Small Wars Founda- In the context of the Vietnam War, ―pacifica- tion, a 501(c)(3) nonprofit. If you value this material, tion‖ referred to ―the collection of programs by please consider supporting us in our efforts to bring it to you. which the United States attempted to assist the Saigon government to gain control over and build Business Office popular support throughout the RVN.‖2 The objec- 4938 Hampden Ln, #560 tive of these programs, which received increased Bethesda, MD 20814 [email protected] resources as the war progressed, was to deprive the VC of support among the rural population by pro- Volume 6, No. 1, © 2010, Small Wars Foundation. tecting villagers from VC intimidation through mil- Permission is granted to print copies for personal, non- itary, police, and intelligence activities. The expec- commercial use. Since we are in this together, Small Wars Journal publishes under the Creative Commons BY-NC-SA tation was that the enhanced security would de- 3.0 license to provide for certain limited uses; per crease support for the insurgency by establishing http://smallwarsjournal.com/site/terms/. All other rights conditions for sustained economic growth and reserved. more effective GVN performance. Successful paci- fication requires a whole-of-government approach to achieve the tight connection between the military No factual statement should be relied upon without further and civil dimensions of the conflict. Although paci- investigation on your part sufficient to satisfy you in your independent judgment that it is true. fication involves non-military programs such as land reform and good governance measures, it en- CKNOWLEDGEMENTS tails an essential military security dimension as A 3 well. The population needs long-term security to This issue and the SWJ writing competition are made poss- feel comfortable cooperating with the government ible, in large part, by the support of Smith Richardson against the insurgents. According to former U.S. Foundation, with our particular thanks to Dr. Nadia Schad- military officer and later senior CORDS adminis- low and Dr. Marin Strmecki. trator John Paul Venn, ―Whether security is ten percent of the total problem or ninety percent, it is military-civilian coordination was weak.5 Poor in- inescapably the first ten percent or the first ninety tegration also prevailed among the programs run percent.‖4 by the various civilian agencies, which differed in Although many U.S. and RVN agencies par- mission approaches, goals, and chains of command ticipated in pacification, their efforts were initially but continued to grow in size and complexity. For poorly integrated. The U.S. Military Assistance example, the State Department, Department of Command Vietnam (MACV) provided military Agriculture, U.S. Agency for International Devel- training to the RVN Army, but the command‘s as- opment (USAID), U.S. Information Service (USIS), sets were outside the control of the U.S. embassy in the Central Intelligence Agency (CIA), and other Saigon. Despite regular meetings between the U.S. government agencies pursued separate and MACV Commander and the American ambassador, conflicting pacification initiatives without an inte- grated strategy.6 The American and RVN pacifica- 5 Robert W. Komer, Bureaucracy at War: US Performance in 2 David L. Anderson, The Columbia Guide to the Vietnam War the Vietnam Conflict (Boulder, Colorado: Westview Press, (New York: Columbia University Press, 2002), pp. 150-151. 1986), p. 90. 3 Andrew F. Krepinvich, Jr., The Army and Vietnam (Baltimore, 6 William Colby, with James McCargar, Lost Victory: A Firs- Maryland: Johns Hopkins University Press, 1986), p. 12. thand Account of America’s Sixteen-Year Involvement in Viet- 4 Cited in Ronald H. Spector, After Tet: The Bloodiest Year in nam (Chicago: Contemporary Books, 1989), pp. 82, 191; and Vietnam (New York: Vintage Books, Random House, 1993), p. Robert Shaplen, The Road From War: Vietnam, 1965-1970 283. (New York: Harper & Row, 1970), p. 158. 2 smallwarsjournal.com SMALL WARS JOURNAL VOL. 6, NO. 1 - FEB 4, 2010 tion programs were also poorly coordinated.7 The The practice of centralizing command of ci- lack of a single major agency or directing body vilian and military resources in a single central meant that pacification ―was everybody‘s business headquarters was replicated at each level of the and nobody‘s.‖8 GVN. CORDS established a unified American civil- military advisory team structure that worked with Despite the evident confusion and ineffi- the RVN agencies involved in pacification in all ciency, repeated efforts to integrate pacification areas of the country‘s administrative hierarchy: the activities better before 1967 failed. Reform pro- 4 military regions; the 44 provinces; and the 242 posals sought only improved coordination, not uni- districts. CORDS coordinated most U.S. in-country fied command or direction. They also addressed personnel, including almost all USIA, USAID, and only civilian program efforts, leaving the military State Department employees deployed in the field, to conduct its own war.9 Representatives of the as well as those CIA employees involved in intelli- State Department and the CIA resisted consolidat- gence and area security and those American mili- ing U.S. pacification efforts under the military.10 tary advisors not directly involved in conventional Past experience had persuaded the civilian agen- combat operations (such as those in support of ru- cies that the military would pay insufficient atten- ral local security forces).