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This electronic representation of RAND intellectual property is provided for non-commercial use only. Unauthorized posting of RAND PDFs to a non-RAND Web site is prohibited. RAND PDFs are protected under copyright law. Permission is required from RAND to reproduce, or reuse in another form, any of our research documents for commercial use. For information on reprint and linking permissions, please see RAND Permissions. This product is part of the RAND Corporation conference proceedings series. RAND conference proceedings present a collection of papers delivered at a conference or a summary of the conference. The material herein has been vetted by the conference attendees and both the introduction and the post-conference material have been re- viewed and approved for publication by the sponsoring research unit at RAND. Integrating Instruments of Power and Influence Lessons Learned and Best Practices Report of a Panel of Senior Practitioners Co-chairs: Robert E. Hunter (principal author), Edward Gnehm, and George Joulwan Rapporteur: Christopher Chivvis Approved for public release; distribution unlimited NATIONAL SECURITY RESEARCH DIVISION This project was conducted within the International Security and Defense Policy Center (ISDP) of the RAND National Security Research Division (NSRD) in cooperation with the American Academy of Diplomacy. 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. Coast Guard, the U.S. Intelligence Community, allied foreign governments, and foundations. Library of Congress Cataloging-in-Publication Data Hunter, Robert Edwards, 1940- Integrating instruments of power and influence : lessons learned and best practices / Robert E. Hunter. p. cm. Includes bibliographical references. ISBN 978-0-8330-4506-5 (pbk. : alk. paper) 1. International relations. 2. International cooperation. 3. Nation-building. 4. Civil-military relations—Case studies. 5. United States—Foreign relations—1989– 6. United States—Military policy—Case studies. 7. Yugoslav War, 1991–1995. 8. Kosovo (Serbia)—History—Civil War, 1998–1999. 9. Iraq War, 2003– 10. Afghanistan—History—2001– I. Title. JZ1310.H86 2008 327.1'170973—dc22 2008029459 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 Carol Earnest. Cover photo credits (left to right): U.S. Marine Corps photo by Cpl. Randall A. Clinton, U.S. Air Force photo by Capt. Gerardo Gonzalez, and USAID photo by Thomas Hartwell. © Copyright 2008 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 2008 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 This project grew out of a decade’s worth of experience, principally gained by the United States, the North Atlantic Treaty Organization (NATO), and the European Union (EU), in military interventions abroad and their aftermath. This experience centered on the Balkans in the 1990s—Bosnia and Kosovo—and on the Middle East and environs in the current decade—Iraq and Afghanistan. In all four of these instances of crisis, conflict, and the postconflict period, it has become increasingly clear that success, defined in any reasonable terms, has depended on how a vari- ety of different instruments of power and influence are exercised, often in concert with one another. In short, military and civilian activities have become virtually inseparable in the kinds of engagements and operations discussed here, and they certainly have become interdependent. So too has cooperation between institutions of government and nongovernmental organiza- tions; and there is also a premium on relations between states and international institutions, as well as on interaction among the latter. Initial insights about these new requirements for cooperation (if not actual integration) of military and nonmilitary activity began in the field and on the ground. They were gained in the first instance by people, especially in the military, who had to work “outside the rule book” as they were faced with circumstances quite different from traditional combat operations and confronted the requirements that emerged when combat ceased. This project is an exploration into what people who have actually been involved in opera- tions in Bosnia, Kosovo, Iraq, and Afghanistan have learned about “getting the job done.” It is a compilation, a synthesis, and an analysis of lessons learned and best practices ranging across the full spectrum of activities from the time before military intervention takes place—indeed, insights from this phase might help to obviate the need for intervention—all the way through to what is generically called postconflict nation-building. This effort originated jointly at the RAND Corporation and the American Academy of Diplomacy, and it has brought together senior practitioners from a wide variety of institutions and disciplines who have direct experience in the situations focused on here. They include U.S., allied, coalition, and United Nations (UN) military leaders, U.S. and European diplomats, and representatives of private-sector and nongovernmental organizations. Together, they have been able to paint a picture of requirements and possibilities for cooperative action that offers hope for dealing effectively with new challenges brought on by insurgency, terrorism, and the disruption of societies through other new forms of conflict. The project began in March 2006 with a conference jointly sponsored by the RAND Corporation, the American Academy of Diplomacy, and the American University School of iii iv Integrating Instruments of Power and Influence: Lessons Learned and Best Practices International Service, which led to a preliminary publication,1 and it has been carried forward during the last two years by RAND and the Academy, in the process engaging more than 60 military, diplomatic, and nongovernmental senior practitioners from 10 different countries. Participants are listed at the end of the Executive Summary. This project was conducted within the International Security and Defense Policy Center (ISDP) of the RAND National Security Research Division (NSRD) in cooperation with the American Academy of Diplomacy. 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. Coast Guard, the U.S. Intelligence Community, allied foreign governments, and foundations. For more information on RAND’s International Security and Defense Policy Center, contact the Director, James Dobbins. He can be reached by email at James_Dobbins@rand. org; by phone at 703-413-1100, extension 5134; or by mail at the RAND Corporation, 1200 S. Hayes Street, Arlington, VA 22202. More information about RAND is available at www. rand.org. The American Academy of Diplomacy was founded in 1983 and was designed to explore ways in which persons who had served in positions of major responsibility could cooperate to promote the highest standards in American diplomatic practice. Its membership includes more than 100 leading figures in the practice of U.S. foreign policy, drawn in major part at the ambassadorial level from the Foreign Service, but also including outstanding figures from the military and non-career ambassadors. The overriding concern underlying each and every activity of the Academy is its belief that the quality of American diplomacy is vital to its effectiveness, whether the practitioner comes from the career service or the political domain. That concern is evident in the objectives stated in its articles of incorporation: t To foster high standards of qualification for, and performance in, the conduct of diplo- macy and the