Visit our website for other free publication downloads http://www.StrategicStudiesInstitute.army.mil/ To rate this publication click here. The Letort Papers In the early 18th century, James Letort, an explorer and fur trader, was instrumental in opening up the Cumberland Valley to settlement. By 1752, there was a garrison on Letort Creek at what is today Carlisle Barracks, Pennsylvania. In those days, Carlisle Barracks lay at the western edge of the American colonies. It was a bastion for the protection of settlers and a departure point for further exploration. Today, as was the case over 2 centuries ago, Carlisle Barracks, as the home of the U.S. Army War College, is a place of transition and transformation. In the same spirit of bold curiosity that compelled the men and women who, like Letort, settled the American west, the Strategic Studies Institute (SSI) and U.S. Army War College (USAWC) Press presents The Letort Papers. This series allows SSI and USAWC Press to publish papers, retrospectives, speeches, or essays of interest to the defense academic community which may not correspond with our mainstream policy- oriented publications. If you think you may have a subject amenable to publication in our Letort Paper series, or if you wish to comment on a particular paper, please contact Dr. Steven K. Metz, Director of Research, Strategic Studies Institute and U.S. Army War College Press, U.S. Army War College, 47 Ashburn Drive, Carlisle, PA 17013-5010. His phone number is (717) 245-3822; email address is [email protected]. We look forward to hearing from you. Strategic Studies Institute and U.S. Army War College Press AFRICOM AT 5 YEARS: THE MATURATION OF A NEW U.S. COMBATANT COMMAND David E. Brown August 2013 The views expressed in this report are those of the author 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. Authors of Strategic Studies Institute (SSI) and U.S. Army War College (USAWC) Press publications enjoy full academic freedom, provided they do not disclose classified information, jeopardize operations security, or misrepresent official U.S. policy. Such academic freedom empowers them to offer new and sometimes controversial perspectives in the inter- est of furthering debate on key issues. This report is cleared for public release; distribution is unlimited. ***** This publication is subject to Title 17, United States Code, Sections 101 and 105. It is in the public domain and may not be copyrighted. ***** Comments pertaining to this report are invited and should be forwarded to: Director, Strategic Studies Institute and the U.S. Army War College Press, U.S. Army War College, 47 Ashburn Drive, Carlisle, PA 17013-5010. ***** All Strategic Studies Institute (SSI) and U.S. Army War College (USAWC) Press publications may be downloaded free of charge from the SSI website. Hard copies of this report may also be obtained free of charge while supplies last by placing an order on the SSI website. SSI publications may be quoted or reprinted in part or in full with permission and appropriate credit given to the U.S. Army Strategic Studies Institute and U.S. Army War College Press, U.S. Army War College, Carlisle, PA. Contact SSI by visiting our website at the following address: www.StrategicStudiesInstitute.army.mil. ***** The Strategic Studies Institute and USAWC Press publishes a monthly email newsletter to update the national security community on the research of our analysts, recent and forthcoming publications, and upcoming conferences sponsored by the Institute. Each newsletter also provides a strategic com- mentary by one of our research analysts. If you are interested in receiving this newsletter, please subscribe on the SSI website at www.StrategicStudiesInstitute.army.mil/newsletter. ISBN 1-58487-582-8 ii FOREWORD The Strategic Studies Institute (SSI) has maintained close and positive professional ties with our colleagues at the Africa Center for Strategic Studies (ACSS) in Washington, DC, since ACSS’s founding in 1999. The Africa Center is the preeminent U.S. Department of Defense (DoD) institution for strategic security stud- ies, research, and outreach in Africa. I am pleased that SSI and ACSS are once more able to collaborate in the publication of this monograph, entitled AFRICOM at 5 Years: The Maturation of a New U.S. Combatant Command. Its author, David E. Brown, is currently the Senior Diplomatic Advisor at ACSS. He brings unique perspectives to the important na- tional security and foreign policy issue of the creation and maturation of the new U.S. Africa Command (AFRICOM). Mr. Brown is a U.S. diplomat intimately familiar with the increased, post-September 11, 2001 (9/11), engagement of the U.S. military in Africa, hav- ing served as Deputy Chief of Mission at three U.S. Embassies in Africa over much of the past 12 years in Cotonou, Benin; Ouagadougou, Burkina Faso; and Nouakchott, Mauritania. Just prior to joining ACSS in 2011, Mr. Brown also served in AFRICOM itself in Stuttgart, Germany, as a Senior Advisor to the J-5 Director responsible for policy, plans, and programs. The author, a Senior Foreign Service Officer of the U.S. Department of State (DoS), has thus been a close and privileged observer of AFRICOM as both an insider and outsider. Mr. Brown’s Letort Paper describes how AFRI- COM has matured greatly over the past 5 years, overcome much of the initial resistance from African stakeholders through a consistent public affairs mes- iii sage emphasizing AFRICOM’s capacity building of ci- vilian-led African militaries, and addressed most U.S. interagency concerns about the Command’s size and proper role within the U.S. national security/foreign policy community by adopting whole-of-government approaches, including integrating a large interagency team at its headquarters in Stuttgart, Germany. This Paper explains the Command’s creation in terms of geostrategic, operational, and intellectual changes since the 1990s, including the rise, particularly post- 9/11, of nonstate actors in Africa—terrorists and crim- inals—who presented asymmetric threats. Mr. Brown concludes this Letort Paper by: 1) de- bunking three myths about AFRICOM: that it was created to exploit Africa’s oil and gas riches, that it blocks China’s rise in Africa, and that France oppos- es AFRICOM; and, 2) raising five issues important to AFRICOM’s future: allocated forces, the selection of the Command’s partner nations, the desirability of regional approaches in Africa, the location of the Command’s headquarters, and the need for a strategic right-sizing of the Command. SSI is pleased to offer this monograph in fulfill- ment of its mission to assist U.S. Army and DoD se- nior leaders and strategic thinkers in understanding the key issues of the day. DOUGLAS C. LOVELACE, JR. Director Strategic Studies Institute and U.S. Army War College Press iv ABOUT THE AUTHOR DAVID E. BROWN is a career member of the Senior Foreign Service, who joined the Africa Center for Strategic Studies (ACSS) as Senior Diplomatic Advi- sor in August 2011. His prior Africa experience in- cludes serving as the Senior Advisor to the J-5 (Strat- egy, Plans, and Programs) Director of the U.S. Africa Command (AFRICOM) in Stuttgart, Germany; three times as Deputy Chief of Mission at U.S. Embassies in Cotonou, Benin; Nouakchott, Mauritania; and Ouaga- dougou, Burkina Faso; and as Economic Officer at the U.S. Consulate-General in Lubumbashi, Democratic Republic of the Congo. Mr. Brown’s non-Africa over- seas tours have been as: Consul General in Chengdu, China; and, Economic Officer in Beijing, Tokyo, and Moscow. He has also served in Washington, DC, as the Director of the Office of Environmental Policy; as Economic Officer in the Bureau of Economic and Busi- ness Affairs responsible for trade policy with devel- oping countries, including Af rica; and on the Canada desk, with responsibilities for economic, consular, and law enforcement issues. Prior to joining the U.S. De- partment of State, he worked in Miami as the business manager of the Latin American Bureau of CBS News. Mr. Brown holds a B.A. in government (political sci- ence) from Cornell University; an M.B.A. from the University of Chicago, specializing in finance; and an M.B.A. from the University of Lou vain, Belgium, with majors in econometrics and international business. v SUMMARY The U.S. Africa Command (AFRICOM), the new- est of the six U.S. Department of Defense (DoD) geo- graphical combatant commands (COCOMs), was created in 2007 amid great controversy in both Africa and the United States over its location and mission. Over the last 5 years, AFRICOM has matured greatly, overcome much of the initial resistance from African stakeholders, and addressed most U.S. interagency concerns about the Command’s size and proper role within the U.S. national security/foreign policy com- munity. AFRICOM is a COCOM Plus, because it also has: 1) a broader soft power mandate aimed at building a stable security environment; and, 2) a rela- tively larger personnel contingent from other U.S. Government agencies. This Letort Paper is divided into five parts. Part I notes that, during the Cold War, Africa remained a low-security priority for the United States, but that from the 1990s to 2007, there were geostrategic, op- erational, and intellectual changes that explain why AFRICOM was eventually created and how it was structured. Two key geopolitical changes were: 1) the rise, particularly post-September 11, 2001 (9/11), of nonstate actors in Africa—terrorists and criminals— who presented asymmetric threats; and, 2) the con- tinent’s growing economic importance in the world, both as a source of strategic natural resources and increasingly as a market.