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Security Assistance: Adapting to the Post-Cold War Era

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Security Assistance: Adapting to the Post-Cold War Era . .·. ·. ' . · . Associ tion .· · . � oftbe, Unite�. States.. Army ·; . :. I '; . .· · . ' . • ... ·' . '. · . • . � . • . ' ' . .. i • • ' . ·. ' ·' .• .,i - ... · . : . SECURITY ASSISTAN:CE:. ._ . ·._ . , ,· . · . ADAPTING TO THE. POST-COLD WA� ERA .: .. • ,. • . '· .. , • • • • J • · · • . : . ' · • . ..' . .. ' . ·· : . ' ·' .. ' · . · .. _September 1996 .·· . ·.. ,_. ' ' . '..· ... I ·, · . · ·:. · . :-. · . · Institute. of. Land. .Warfare · . · •. .. ··.· SECURITY ASSISTANCE: ADAPTING TO THE POST-COLD WAR ERA CONTENTS FOREWORD................................................................................................................................................ v SECURITY ASSISTANCE: ADAPTING TO THE POST-C OLD WAR ERA ......................................... 1 INTRODUCTION .................................................................................................................................. 1 Fiscal Year 1997 Program ........................... ..................................................................................... 1 SECURITY ASSISTANCE ................................................... ......................................................... ....... 2 Program Evolution ............................................................................................................................. 3 Foreign Military Financing (FMF)..................................................................................................... 3 International Military Education and Training (IMET)............................................................... ....... .4 Peacekeeping Operations (PK0) ........................................................................................................ 6 Foreign Military Sales (FMS) ............................................................................................................ 6 Excess Defense Articles (EDA) ......................................................................................................... 7 Leased Defense Articles (LDA) ...... : .................................................................................................. 8 Direct Commercial Sales (DCS) ........................................................................................................ 8 FUNDAMENTALS OF SECURITY ASSISTANCE ........................................................................... 9 Interests and Purposes ........................................................................................................................ 9 U.S. Government Actors .................................................................................................................. 10 DoD Management Structure ............................. ............................................................................... 13 Program Management ...................................................................................................................... 14 EVALUATING SECURITY ASSISTANCE ........ .............................................................................. 16 Reality Check: Benefits and Costs ................................................................................................... 16 Other Countries' Security Needs ......................... ............................................................................. 17 Adapting the Foreign Sales Process ................................................................................................. 18 CONCLUSION: PUTTING SECURITY IN SECURITY ASSISTANCE ......................................... 19 GLOSSARY ............ ................................................................................................................................... 21 MAJOR SECURITY ASSISTANCE LEGISLATION .................................. ........... ................................. 23 BIBLIOGRAPHY .................................................. ................................................................................... 25 TABLES 1. FY 1997 Foreign Operations Budget (Security Assistance) ................................................................ 2 2. Direct Commercial Sales (Deliveries) .............................................................................................. .. 9 FIGURES 1. Foreign Military Financing ..................................................................................................................4 2. International Military Education and Training ............................. .......................... ..................... ......... 5 3. Foreign Military Sales, FY 1986-1996 ................................................................................................ 7 4. United States Govertunent Organization for Security Assistance ...................................................... 12 iii FOREWORD The Department of Defense (DoD) has responsibility to maintain trained, ready fo rces to defend the United States and protect American interests worldwide. At the same time, DoD has responsibility to carry out security assistance programs to assist allies and friendly countries so they can meet their legitimate defense needs. In executing the security assistance mission, DoD operates in accordance with the foreign and national security policy guidelines established by the President. The President's national security strategy and arms transfer policies, and laws enacted by Congress, are the bases of the guidelines. The goal of this report is to present a concise tutorial on an important and often misunderstood instrument of U.S. national security and foreign policy. With this report as a baseline, it is hoped that the reader will (1) gain a more informed perspective of security assistance; (2) be better prepared to examine security assistance programs promulgated by our government; and (3) be better able to evaluate contemporary issues of security assistance in a fuller context. AUSA's special report on security assistance was first published in 1990. This revision reflects a security assistance program that is no longer directed primarily at a monolithic threat. Instead, it is now aimed at helping many of the United States' former Cold War enemies. Much of the Cold War infrastructure and processes remain in place; however, the primarily military component of U.S. fo reign assistance (security assistance) is less prominent as other forms of assistance emerge to meet a wider array of national needs. Colonel James D. Blundell, USA, Retired, Director of Programs, Institute of Land Warfare, is the author of the 1990 and revised 1996 reports. He was ably assisted in its preparation by Sandra J. Daugherty and Lori J. Johnston. I �?f)� JACK N. MERRITT General, USA, Retired President September 1996 v SECURITY ASSISTANCE: ADAPTING TO THE POST-COLD WAR ERA INTRODUCTION export licensing and technology transfer authority. These programs, coupled with the three U.S.-financed programs National security is the responsibility of the executive listed above - and over which DoD has direct or branch. Under the leadership of the President, foreign and oversight responsibility - present a more complete national security policies are promulgated, the latter in the picture of security assistance. form of a formal national security strategy. National security objectives are articulated and the necessary Having said this, the term "security assistance" programs developed to achieve them. The checks and appears to be a relic of the Cold War era when the balances of the legislative branch and American public military component of aid to allies and friends was aimed opinion leave their imprints on the national security primarily at deterring the Soviet Union and countering policies and programs of the executive branch. Soviet military assistance to surrogates throughout the world. Security assistance was overwhelmingly the Foreign assistance (or foreign aid) is one set qf operative term in budget submissions, and highlighted in programs designed to implement the foreign and the titles; the formal congressional presentation national defense policies of the United States. Foreign submissions for Fiscal Year (FY) 1994 and thereafter, assistance is composed of economic, humanitarian and however, make much less use of the term. military programs to assist other countries and international organizations. Fiscal Year 1997 Program U.S. government-funded economic and humanitarian assistance to foreign countries and international In the absence of a monolithic Soviet military organizations is handled under various development threat, particularly through surrogate countries, U.S. assistance programs. U.S. government-funded assistance programs have become more differentiated, assistance aimed at providing military equipment and with aims other than legitimate self-defense through training to other countries and to international military assistance. Threats include the traditional peacekeeping organizations is handled under security military elements but also encompass economic assistance programs. U.S.-financed security assistance weaknesses, environmental degradation, large-scale consists of the following programs: migrations, terrorism, drug trafficking and crime. For this reason, "security assistance" can be regarded • Foreign Military Financing (FMF) today primarily as a DoD operative term used to • InternationalMilitary Education and Training (IMET) differentiate DoD programs from several others which • Peacekeeping Operations (PKO) address the more
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