AU/AFF/2022/2010-04 AIR FORCE FELLOWS (SDE) AIR UNIVERSITY U.S. INTERAGENCY REGIONAL FOREIGN POLICY IMPLEMENTATION: A SURVEY OF CURRENT PRACTICE AND AN ANALYSIS OF OPTIONS FOR IMPROVEMENT by Robert S. Pope, PhD, Lieutenant Colonel, USAF A Research Report Submitted to the Air Force Fellows Program In Partial Fulfillment of the Graduation Requirements Advisors: Dr Edwina S. Campbell Professor of National Security Studies Air Command and Staff College Dr Meghan O’Sullivan Kirkpatrick Professor of the Practice of International Affairs Belfer Center for Science and International Affairs Kennedy School of Government, Harvard University Maxwell Air Force Base, Alabama April 2010 Disclaimer The views expressed in this academic research paper are those of the author and do not reflect the official policy or position of the US government or the Department of Defense. In accordance with Air Force Instruction 51-303, it is not copyrighted, but is the property of the United States government. ii Contents Page DISCLAIMER ................................................................................................................................II LIST OF ILLUSTRATIONS........................................................................................................ VI LIST OF TABLES.......................................................................................................................VII ABSTRACT................................................................................................................................VIII CHAPTER 1: INTRODUCTION...................................................................................................1 CHAPTER 2: CURRENT PRACTICE - MILITARY .................................................................11 Military-Led Interagency Coordination Mechanisms .............................................................11 Foreign Policy Advisor......................................................................................................12 Joint Interagency Coordination Group (JIACG) ...............................................................13 Joint Interagency Task Force (JIATF)...............................................................................18 Interagency Structures at the Geographic Combatant Commands..........................................19 CENTCOM........................................................................................................................20 PACOM.............................................................................................................................25 EUCOM.............................................................................................................................30 SOUTHCOM.....................................................................................................................33 AFRICOM.........................................................................................................................40 Summary of Current Structures at the GCCs ....................................................................44 CHAPTER 3: CURRENT PRACTICE – U.S. CIVILIAN AGENCIES......................................55 State Department Structures for Civil-Military Coordination.................................................55 Under Secretary for Political Affairs (P) – Regional Bureaus ..........................................58 Bureau of Political Military Affairs (PM) .........................................................................59 Office of the Coordinator of Reconstruction and Stabilization (S/CRS) ..........................60 U.S. Agency for International Development (USAID) .....................................................64 U.S. Embassies ..................................................................................................................68 U.S. Regional Missions .....................................................................................................69 The National Security Council’s Role in Regional Interagency Unity of Effort ....................71 Other Interagency Examples ...................................................................................................73 DHS and ODNI .................................................................................................................73 National “Centers”.............................................................................................................74 Policy “Czars” and Special Envoys...................................................................................76 Summary of Non-Military Interagency Structures..................................................................77 iii CHAPTER 4: THE NEED FOR IMPROVEMENT.....................................................................86 Peacetime Theater Engagement...............................................................................................87 Theater Security Cooperation............................................................................................87 Counterterrorism Engagement...........................................................................................92 Response to Disaster or Humanitarian Crisis..........................................................................94 Military Operations..................................................................................................................98 Vietnam – 1964-1973 ........................................................................................................98 Panama – Just Cause and Promote Liberty – 1989-1990 ................................................101 Haiti – Uphold Democracy – 1994-1995 ........................................................................103 Afghanistan – Enduring Freedom and NATO ISAF – 2001-Present..............................105 Iraq – Iraqi Freedom – 2003-Present...............................................................................111 CHAPTER 5: OPTIONS FOR IMPROVEMENT .....................................................................122 A Typology of Interagency Reform Options.........................................................................123 Reform Options at the Regional Level..................................................................................124 A Regional Interagency Organization .............................................................................125 State Leads at the Regional Level ...................................................................................133 The Military Leads at the Regional Level.......................................................................136 A Parallel Regional Structure..........................................................................................140 Reform Options at the Country Level during Crisis Operations...........................................143 An Interagency Structure.................................................................................................145 State Leads.......................................................................................................................148 The Military Leads ..........................................................................................................150 A Parallel Structure .........................................................................................................151 CHAPTER 6: ANALYSIS AND RECOMMENDATION ........................................................159 Country Level during Crisis ..................................................................................................164 Regional Level.......................................................................................................................169 The Recommended Reform Model .......................................................................................174 The Model........................................................................................................................174 Applying the Model.........................................................................................................177 Requirements for Implementing the Reforms .......................................................................181 Bureaucratic Resistance...................................................................................................181 Diplomatic Endorsement .................................................................................................183 Locating the U.S. Regional Missions ..............................................................................185 Regional Boundaries........................................................................................................187 Cost..................................................................................................................................188 Personnel and Culture......................................................................................................190 Legislation .......................................................................................................................191 What if There’s No Appetite for Interagency Reform?...................................................194 APPENDIX A: LIST OF ACRONYMS ....................................................................................198 APPENDIX B: INTERAGENCY REFORM AT THE NATIONAL LEVEL...........................206 Reform Options at the National/Strategic Level ...................................................................206