Tuesday, May 6, 2014

“Counterinsurgency is Not a Substitute for Strategy”

My review of the new COIN manual.  Please read the entire review at Small Wars Journal.


“Counterinsurgency is Not a Substitute for Strategy”

by David S. Maxwell

Journal Article | May 6, 2014 - 9:07am
“Counterinsurgency is Not a Substitute for Strategy”
(para 1-4, page 1-2 FM 3-24/MCWP 3-33.5)
David S. Maxwell
This quote alone justifies the publication of the new FM 3-24/MCWP 3-33.5.  And the new title is worth noting as well – “Insurgencies and Countering Insurgencies.”  The title recognizes and illustrates what scholars and practitioners alike should know – insurgency is not monolithic or single scope.  There is a broad range of insurgencies 9and revolutions) and it can be said with near certainty that no two are the same.
Overall I think this version is a vast improvement over the 2006 edition and I think it will be more useful at the tactical and operational level.  Before I get into my criticisms I will say that although it is stated many times throughout the manual that the US forces should be in support of (or work with as Chapter 11 says) host nation forces I believe that the culture of the US military remains hard pressed to let go of the reins of control nor has the patience to allow another government and its security forces to be in the lead when countering insurgencies in their countries.  Despite the multiple admonitions and direction in the manual (including the figure 11-1,  “Host Nation Security Force Meter” which shows US forces in the lead as ineffective and host nation forces in the lead as effective after they have been taught, coached, and advised by the US military) many military planners may still gravitate to leading counterinsurgency operations with US forces. 
I will also state my bias and provide a caveat up front.  I am approaching this review from a perspective based on my personal experience as a Special Forces soldier and basing it on the short time to read and study this nearly 200 page document (197 page in PDF format). 
There are two aspects of the new manual that are particularly noteworthy.  The first is the emphasis on the importance of assessment, continuous assessment and reassessment.  Not only are these critically important concepts discussed in great detail in Chapter 7 “Planning and Operational Considerations” and other chapters as well, there is a complete chapter (12) dedicated to a discussion of assessments.  There is probably no more supporting concept and capability for countering insurgencies than being able to conduct thorough and continuous assessments to gain situational understanding (vice only awareness).  As a first aside, I would note that there is some very good doctrine in the Special Forces community for conducting both area studies and area assessments and there are excellent examples of their use both in Haiti in the 1990’s and in the Philippines, post 9-11.  A similar template using guided questions was used in both operations to gather information to really learn about and understand the local conditions from security to politics to the economy.  I would have included an example of this sixty-plus question template as well as other tactical examples that have been developed over the years in an annex.  That would have really put the fine point on the importance of assessments and provide something of immediate practical value to tactical units. 
The second noteworthy addition to this manual is the discussion of conventional and special operations forces synchronization.  There is a useful discussion in Chapter 6, “Command and Control and Mission Command” and it notes that “the integration of conventional force and SOF have special considerations in counterinsurgency” as they depend on each other.  This is a lesson learned from Afghanistan and Iraq and from a special operations perspective also illustrates the 5th SOF Truth: “most special operations require non-SOF support.”   Another interesting side note is that in the reference list there is a new manual with which I am unfamiliar but I think should be read in conjunction with this one: FM 6-05/MCWP 3-36.1.CF-SOF Multi-Service Tactics, Techniques, and Procedures for Conventional Forces and Special Operations Forces Integration, Interoperability, and Interdependence. 13 March 2014. 
While these are two important parts of the new manual there is another aspect that requires some discussion.  The first is that Chapters 10 and 11, “Indirect Methods for Counter Insurgencies” and “Working with Host Nation Forces” does not emphasize the idea or possibility that some US operations to support a host nation in countering an insurgency might be appropriately led by US SOF.  In some situations it may be more appropriate to conduct the mission using the doctrine of Foreign Internal Defense (FID) as the proper way to frame the relationship between US Forces in a supporting role and the host nation forces in the supported role.
However, FID is not mentioned until briefly in Chapter 10, along with Security Force Assistance (a post 9-11 doctrinal development), and then only in terms of security assistance planning training host nation forces.  Passing references are made to two current and ongoing FID missions, namely Colombia and the Philippines (page 11-10, para., 11-34 and page 11-11, para., 11-36).  US SOF and other forces are conducting FID to assist the host nation government and its forces to the insurgency that threatens it.  As an aside from a historical perspective I would have recommended returning to the 1963 FM 31-22 US Army Counterinsurgency Forces (access here) which not only provides a framework and force structure for SOF led operations, it also provides many still relevant operational concepts that could have been considered for inclusion in this manual. 
As we consider historical examples, the Laotian insurgency is also mentioned in passing with an historical vignette on pages 1-3 and 1-4.  It failed to mention that the United States conducted a CIA and Special Forces led operation called White Star in Laos. (short summary here) This is another example of a historical SOF-led FID mission.
Another historical vignette used in the manual is the Huk Rebellion in the Philippines, in this case to illustrate the new framework of “shape-clear-hold-build-transition.” (Chapter 9).  This is also another example of a very limited US footprint and commitment to support the host nation government and security forces and one that was also conducted in effect by a SOF officer, Maj Gen Edward Lansdale who was a member of the OSS in WWII and later the CIA.  Three other historical vignettes of very small footprint indirect operations were Sri Lanka, Peru, and El Salvador but they are not described in terms of FID or the effective use of SOF to advise and assist host nation forces to counter insurgencies.  The problem that I see is that the manual only recognizes FID as part of security cooperation and then only in the function of training host nation forces despite the definition of FID which is  “Participation by civilian and military agencies of a government in any of the action programs taken by another government or other designated organization to free and protect its society from subversion, lawlessness, insurgency, terrorism, and other threats to its security.” This is the most comprehensive US (military and interagency) mission to help a US friends, partners, and allies to counter insurgencies (as well as threats from subversion, lawless, and terrorism). FID provides the framework for the indirect approaches yet Chapter 10 fails to mention it.
In my opinion the main effort focus of the manual should be on the indirect methods and the support to host nation forces (as opposed to working with host nation forces – a perhaps subtle distinction – support to ensures host nation primacy, working with can be interpreted as US lead).  This would be in keeping with Defense Strategic Guidance, January 2012 that is not referenced in the manual. (access here)
Conduct Stability and Counterinsurgency Operations. In the aftermath of the wars in Iraq and Afghanistan, the United States will emphasize non-military means and military-to-military cooperation to address instability and reduce the demand for significant U.S. force commitments to stability operations. U.S. forces will nevertheless be ready to conduct limited counterinsurgency and other stability operations if required, operating alongside coalition forces wherever possible. Accordingly, U.S. forces will retain and continue to refine the lessons learned, expertise, and specialized capabilities that have been developed over the past ten years of counterinsurgency and stability operations in Iraq and Afghanistan. However, U.S. forces will no longer be sized to conduct large-scale, prolonged stability operations. (emphasis added)
The initial chapter makes it very clear that the Army and Marine Corps’ role in counterinsurgency is to enable the host nation.  However, as mentioned at the beginning of this review US military culture will always drive us to the desire to lead and it is hard for the US military mind to envision being a supporting effort to friends, partners, or allies.  Again, although the manual emphasizes the importance of indirect methods and the host nation there are subtle messages that can be read throughout by a mind pre-disposed to lead that will cause him or her to focus on the direct approaches.  The most obvious of the subtle messages is that the chapter “Direct Approaches to Counter an Insurgency” comes before “Indirect Methods for Countering Insurgencies” and “Working with Host Nation Forces.”  I would have recommended a reverse order if only to send the message that the direct approaches are a last resort or used in extreme situations where no host nation forces exist (though in a post-conflict situation after major combat operations the proper execution of stability operations in support of the remnants of the host nation government might well prevent an insurgency – an insurgency does not have to result from defeat in major combat operations – though it is likely in a place such as north Korea).   But even if that were changed there is simply too much discussion and too many examples of the US as the lead nation throughout the entire manual.
Planning is of course discussed in detail in Chapter 7, Planning and Operational Considerations.” but interestingly the new methodolgy of “shape-clear-hold-build- transition” is introduced and described in Chapter 9, “Direct Approaches to Counter an Insurgency.”  This appears to be the fundamental planning construct as the US method for countering an insurgency.  The relatively old (2006) but very well known “clear-hold-build” has been updated and since it is now associated with the direct approaches this is bound to reinforce, at least in the subconscious, that the direct approach is the preferred method of countering an insurgency by US forces.
(Continued at the link below)

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