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America's Role in Nation-Building: from Germany to Iraq

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America's Role in Nation-Building: from Germany to Iraq This research in the public interest was supported by RAND, using discretionary funds made possible by the generosity of RAND's donors, the fees earned on client-funded research, and independent research and development (IR&D) funds provided by the Department of Defense. Library of Congress Cataloging-in-Publication Data America’s role in nation-building : from Germany to Iraq / James Dobbins ... [et at.]. p. cm. Includes bibliographical references. “MR-1753.” ISBN 0-8330-3460-X 1. United States—Foreign relations—1945–1989—Case studies. 2. United States—Foreign relations—1989—Case studies. 3. United States—Military policy—Case studies. 4. Intervention (International law)—Case studies. I. Dobbins, James, 1942– E840.A6215 2003 327.73'009'045—dc21 2003014127 Cover photographs: U.S. Navy (left), Goran Tomasevic/Reuters (right) RAND is a nonprofit institution that helps improve policy and decisionmaking through research and analysis. RAND® is a registered trademark. RAND’s publications do not necessarily reflect the opinions or policies of its research sponsors. Cover design by Stephen Bloodsworth © Copyright 2003 RAND 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 2003 by RAND 1700 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 201 North Craig Street, Suite 202, Pittsburgh, PA 15213-1516 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 report contains the results of a study on best practices in nation- building. Its purpose is to analyze U.S. and international military, political, and economic activities in postconflict situations since World War II, determine key principles for success, and draw impli- cations for future U.S. military operations. This report contains the lessons learned from each of these operations, then applies them to the case of Iraq. The preponderance of this research was conducted prior to the March 19, 2003, commencement of Operation Iraqi Freedom, but the project team focused on the near-term implications of our effort throughout the course of this work. To that end, this study served as the point of departure for a RAND conference on nation-building and the future of Iraq that was held in Arlington, Virginia, on May 6– 7, 2003. The results of that conference were factored into the final version of this study. (The appendix lists the conference attendees.) This report is a result of RAND’s continuing program of self- sponsored independent research. Support for such research is pro- vided, in part, by donors and by the independent research and development provisions of RAND’s contracts for the operation of its U.S. Department of Defense federally funded research and develop- ment centers. This report should be of interest to defense and foreign policy decisionmakers, practitioners, analysts, and others concerned with the roles of the United States, other nations, and international and nongovernmental organizations in postconflict situations. Comments are welcome and should be addressed to James Dobbins or Seth Jones. iii iv America’s Role in Nation-Building: From Germany to Iraq This research was overseen by RAND’s National Security Research Division (NSRD). NSRD conducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the unified commands, the defense agencies, the Department of the Navy, the U.S. intelli- gence community, allied foreign governments, and foundations. CONTENTS Preface ........................................ iii Figures and Table ................................ xi Executive Summary............................... xiii Acknowledgments................................ xxxi Abbreviations ................................... xxxiii Chapter One INTRODUCTION ............................. 1 Chapter Two GERMANY .................................. 3 Challenges .................................. 4 Security ................................... 4 Humanitarian .............................. 5 Civil Administration ......................... 5 Democratization ............................ 6 Reconstruction ............................. 6 The U.S. and International Roles .................. 7 Military ................................... 7 Civil and Economic .......................... 8 What Happened .............................. 8 Security ................................... 9 Humanitarian .............................. 12 Civil Administration ......................... 13 Democratization ............................ 15 Reconstruction ............................. 17 Lessons Learned .............................. 20 v vi America’s Role in Nation-Building: From Germany to Iraq Chapter Three JAPAN...................................... 25 Challenges .................................. 26 Security ................................... 26 Humanitarian .............................. 26 Civil Administration ......................... 27 Democratization ............................ 27 Reconstruction ............................. 28 The U.S. and International Roles .................. 28 Military ................................... 30 Civil and Economic .......................... 31 What Happened .............................. 32 Security ................................... 32 Humanitarian .............................. 36 Civil Administration ......................... 38 Democratization ............................ 43 Reconstruction ............................. 45 Lessons Learned .............................. 51 Chapter Four SOMALIA ................................... 55 Challenges .................................. 56 Security ................................... 56 Humanitarian .............................. 57 Civil Administration ......................... 57 Democratization ............................ 57 Reconstruction ............................. 58 The U.S. and International Roles .................. 58 Military ................................... 58 Civil and Economic .......................... 59 What Happened .............................. 60 Security ................................... 60 Humanitarian .............................. 64 Civil Administration ......................... 64 Democratization ............................ 66 Reconstruction ............................. 68 Lessons Learned .............................. 68 Chapter Five HAITI ...................................... 71 Challenges .................................. 71 Contents vii Security ................................... 72 Humanitarian .............................. 72 Civil Administration and Democratization ......... 72 Reconstruction ............................. 73 The U.S. and International Roles .................. 73 Military ................................... 74 Civil and Economic .......................... 74 What Happened .............................. 74 Security ................................... 75 Humanitarian .............................. 78 Civil Administration and Democratization ......... 78 Reconstruction ............................. 80 Lessons Learned .............................. 83 Chapter Six BOSNIA .................................... 87 Challenges .................................. 89 Security ................................... 89 Humanitarian .............................. 90 Civil Administration ......................... 90 Democratization ............................ 92 Reconstruction ............................. 92 The U.S. and International Roles .................. 93 Military ................................... 93 Civil and Economic .......................... 94 What Happened .............................. 95 Security ................................... 95 Humanitarian .............................. 98 Civil Administration ......................... 100 Democratization ............................ 103 Reconstruction ............................. 103 Lessons Learned .............................. 107 Chapter Seven KOSOVO .................................... 111 Challenges .................................. 112 Security ................................... 112 Humanitarian .............................. 113 Civil Administration ......................... 113 Reconstruction ............................. 114 The U.S. and International Roles .................. 114 viii America’s Role in Nation-Building: From Germany to Iraq Military ................................... 114 Civil and Economic .......................... 115 What Happened .............................. 116 Security ................................... 117 Humanitarian .............................. 121 Civil Administration ......................... 121 Democratization ............................ 122 Reconstruction ............................. 123 Lessons Learned .............................. 126 Chapter Eight AFGHANISTAN ............................... 129 Challenges .................................. 130 Security ................................... 130 Humanitarian .............................. 131 Civil Administration ......................... 131 Democratization ............................ 131 Reconstruction ............................. 132 The U.S. and International Roles .................. 132 Military
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