Tag Afghanistan

Recent Academic Research On Counterinsurgency

An understanding of the people and culture of the host country is an important aspect of counterinsurgency. Here, 1st Lt. Jeff Harris (center) and Capt. Robert Erdman explain to Sheik Ishmael Kaleel Gomar Al Dulayani what was found in houses belonging to members of his tribe during a cordon and search mission in Hawr Rajab, Baghdad, Nov. 29, 2006. The Soldiers are from Troop A, 1st Squadron, 40th Cavalry Regiment. (Photo Credit: Staff Sgt. Sean A. Foley)

As the United States’ ongoing decade and a half long involvement in Afghanistan remains largely recessed from the public mind, the once-intense debate over counterinsurgency warfare has cooled as well. Interest stirred mildly recently as the Trump administration rejected a proposal to turn the war over to contractors and elected to slightly increase the U.S. troop presence there. The administration’s stated policy does not appear to differ significantly from that that proceeded it.

The public debate, such as it was, occasioned two excellent articles addressing Afghanistan policy and relevant recent academic scholarship on counterinsurgency, one by Max Fisher and Amanda Taub in the New York Times, and the other by Patrick Burke in War is Boring.

Fisher and Taub addressed the question of the seeming intractability of the Afghan war. “There is a reason that Afghanistan’s conflict, then and now, so defies solutions,” they wrote. “Its combination of state collapse, civil conflict, ethnic disintegration and multisided intervention has locked it in a self-perpetuating cycle that may be simply beyond outside resolution.”

The article weaves together findings of studies on these topics by Ken Menkhaus; Romain Malejacq; Dipali Mukhopadhyay; and Jason Lyall, Graeme Blair, and Kosuke Imai. Fisher and Taub concluded on the pessimistic note that bringing peace and stability to Afghanistan may be on a generational time scale.

Burke looked at a more specific aspect of counterinsurgency, the relationship between civilian casualties and counterinsurgent success of failure. Separating insurgents from the civilian population is one of the central conundrums of counterinsurgency, referred to as the “identification problem.” Burke noted that the current U.S. military doctrine holds that “excessive civilian casualties will cripple counterinsurgency operations, possibly to the point of failure.” This notion rests on the prevailing assumption that civilians have agency, that they can choose between supporting insurgents or counterinsurgents, and that reducing civilian deaths and “winning hearts and minds” is the path to counterinsurgency success.

Burke surveyed work by Matthew Adam Kocher, Thomas B Pepinsky, and Stathis N. Kalyvas; Luke Condra and Jacob Shapiro; Lyall, Blair and Imai, Christopher Day and William Reno; Lee J.M. Seymour; Paul Staniland; and Fotini Christia. The picture portrayed in this research indicates that there is no clear, direct relationship between civilian casualties and counterinsurgent success. While civilians do hold non-combatant deaths against counterinsurgents, the relevance of blame can depend greatly on whether the losses were inflicted by locals for foreigners. In some cases, counterinsurgent brutality helped them succeed or had little influence on the outcome. In others, decisions made by insurgent leaders had more influence over civilian choices than civilian casualties.

While the collective conclusions of the studies surveyed by Fisher, Taub and Burke proved inconclusive, the results certainly warrant deep reconsideration of the central assumptions underpinning prevailing U.S. political and military thinking about counterinsurgency. The articles and studies cited above provide plenty of food for thought.

Army Creates Security Force Assistance Brigades and Training Academy

U.S. Army Staff Sgt. Brandon Blanton, center, a trainer with Company A, 1st Battalion, 502nd Infantry Regiment, Task Force Strike, assists Iraqi army ranger students during a room-clearing drill at Camp Taji, Iraq, July 18, 2016. The new Security Force Assistance Brigades will assume these types of missions in the future. (Photo Credit: 1st Lt. Daniel Johnson)

With much of the focus of the defense and national security communities shifting to peer and near-peer challenges, the Department of the Army’s recent announcement that the first Security Force Assistance Brigade (SFAB) will begin standing up in October 2017 comes as an interesting bit of news. The Army will also establish a new Military Advisor Training Academy at Ft. Benning, Georgia to train officers and non-commissioned officers to staff what are projected to a total of six SFABs with 500 personnel each.

The Strategic Role of Security Force Assistance

Security Force Assistance (SFA) is the umbrella term for U.S. whole-of-government support provided to develop the capability and capacity of foreign security forces and institutions. SFA is intended to help defend host nations from external and internal threats, and encompasses foreign internal defense (FID), counterterrorism (CT), counterinsurgency (COIN), and stability operations.

The use of military aid to bolster allies is a time-old strategic expedient; it was one of the primary weapons with which the U.S.waged the Cold War. SFA has assumed a similar role in U.S. policy for countering global terrorism, as a cost-effective alternative to direct involvement in destroying or deterring the development of terrorist sanctuaries. The efficacy of this approach is a hot topic for debate in foreign policy and national security circles these days.

Organizing, training, equipping, building, advising, and assisting foreign security forces is a time and resource-intensive task and the best way of doing it has been long debated. One of the Army’s justifications for creating the SFAB’s was the need to free line units from SFA taskings to focus on preparing for combat operations. The Army is also highlighting the SFABs dual capability as cadres upon which combat-ready U.S. Army Brigade Combat Teams (BCTs) can be quickly created in a national emergency with the addition of junior personnel.

Advise and Assist: SOF vs. General Purpose Forces?

The Army believes that dedicated SFABs will be more effective at providing SFA than has been the case with recent efforts. This is an important consideration in light of the decidedly mixed combat performance of U.S.-trained and equipped Afghan and Iraqi security forces. The dramatic collapse of Iraqi Army units defending Mosul in 2014 that had been trained by conventional U.S. forces contrasts with the current dependence on U.S. Special Operations Forces (SOF)-trained Iraqi Counterrorism Service (CTS) forces to lead the effort to retake the city.

This apparent disparity in success between the SOF advise and assist model and the more generic conventional force SFA template is causing some angst in the U.S. Army Special Forces (ARSOF) community, some of whom see training foreign security forces as its traditional institutional role. Part of the reason conventional forces are assigned SFA tasks is because there will never be enough ARSOF to meet the massive demand, and ARSOF units are needed for other specialized taskings as well. But the ultimate success of the SFABs will likely be gauged against the historical accomplishments of their SOF colleagues.

Meanwhile, In Afghanistan…

The latest quarterly report from the Special Inspector General for Afghanistan Reconstruction (SIGAR) has been released. America’s military involvement in Afghanistan passed its 15th anniversary in October.

The data presented in the SIGAR report show some disturbing trends. Through the first eight months of 2016, Afghan national defense and security forces suffered approximately 15,000 casualties, including 5,523 killed. This from a reported force of 169,229 army and air force personnel (minus civilians) and 148,480 national police, for a total of 317,709. The casualty rate undoubtedly contributed to the net loss of 2,199 personnel from the previous quarter.

sigur-02Afghan forces suffered 5,500 killed-in-action and 14,000+ wounded in 2015. They have already incurred that many combat deaths so far in 2016, though the number of wounded is significantly lower than in 2015. The approach of winter will slow combat operations, so the overall number of casualties for the year may not exceed the 2015 total.

The rough killed-to-wounded ratio of 3 to 1 for Afghan forces for 2016 is lower than in 2015, and does not compare favorably to rates of 9 to 1 and 13 to 1 for U.S. Army and Marine forces in combat from 2001-2012. This likely reflects a variety of factors, including rudimentary medical care and forces operating in exposed locations. It also suggests that even though the U.S. has launched over 700 air strikes, already more than the 500 carried out in all of 2015, there is still insufficient fire support for Afghan troops in contact

Insurgents are also fighting for control of more of the countryside than in 2015. The Afghan government has lost 2.2% of its territory so far this year. It controls or influences 258 of 407 total districts (63.4%), while insurgents control or influence 33 (8.1%),  and 116 are “contested” (28.5%).

sigur-03The overall level of violence presents a mixed picture. Security incidents between 20 May 20 and 15 August 2016 represent a 4.7% increase over the same period last year, but a 3.6% decrease from the same period in 2014.

sigur-01The next U.S. president will face some difficult policy choices going forward. There are 9,800 U.S. troops slated to remain the country through the end of 2016, as part of an international training and counterterrorism force of 13,000. While the Afghan government resumed secret peace talks with the Taliban insurgents, a political resolution does not appear imminent. There appear to be no appealing strategic options or obvious ways forward for ending involvement in the longest of America’s ongoing wars against violent extremism.

Can Effective Armies Exist Without Effective Governance? History Suggests No.

ARVN soldiers and U.S. advisor (U.S. Army Center for Military History)
ARVN soldiers and U.S. advisor (U.S. Army Center for Military History)

Is it possible for an outside country to build an effective indigenous military? The United States inter-agency and national security communities have a strong current interest in helping other countries develop and sustain effective security establishments. This is officially termed Security Cooperation (SC). The assistance provided directly by the U.S. military to foreign military organizations is called Security Force Assistance (SFA). SC and SFA are both integral aspects of current U.S. foreign policy and military strategy.

The U.S. has been providing SFA since at least World War II, but its success in this undertaking has been decidedly mixed. A two-decade effort by the U.S. to build an effective South Vietnamese army culminated in abject failure at the hands of North Vietnam in 1975. Despite a decade of investment in money, resources, and manpower, the U.S. has yet to build (or rebuild) independently effective military establishments in Afghanistan and Iraq.

One consistent factor in each of these cases has been the lack of a stable, effective indigenous government to underpin the military forces. How important is effective governance to successful military establishments? History suggests that it may be integral.

On his wonderful blog, The Best Defense, Tom Ricks recently posed the question “Is the existence of a capable infantry a sign of a strong government bureaucracy?” In his recently published The Gunpowder Age: China, Military Innovation, and the Rise of the West in World History, Tonio Andrade cited Stephen Morillo’s observation that “strong infantry depends on strong government” to support that assertion that Europe had poor infantry in the 15th century by Chinese standards because of underdeveloped governments.

According to Ricks, Morillo made six implicit points:

  1. To have an infantry, you have to get people together
  2. To get them together and keep them together, you need a central authority
  3. You also need to feed and house them, and that requires money, likely raised by taxes, which again requires central authority
  4. To raise the taxes and collect them, you need assessors and collectors — that is, a bureaucracy
  5. And that is why a soldier is different from a warrior. A tribe can field a warrior, and a good one. But it takes a state to develop and sustain an infantry soldier.

Historical experience would suggest not only that capable military forces are reflective of effective governance, but that strong governments are necessary in order to field strong military establishments. This fundamental lesson may be vital to the future success of U.S. SC and SFA efforts.

We May Not Be Interested in COIN, but COIN is Interested in Us

Photo By United States Mint, Smithsonian Institution [Public domain or Public domain], via Wikimedia Commons
Photo By United States Mint, Smithsonian Institution [Public domain or Public domain], via Wikimedia Commons

Is the United States Army turning its back on the experience it gained in Iraq and Afghanistan? Retired Brigadier General Robert Scales fears so. After recounting his personal experience with the U.S. Army’s neglect of counterinsurgency lessons following the Vietnam War, Scales sees the pattern repeating itself.

The Army as an institution loves the image of the big war: swift maneuver, tanks, heavy artillery, armed helicopters overhead, mounds of logistics support. The nitty-gritty of working with indigenous personnel to common ends, small unit patrols in civilian-infested cities, quick clashes against faceless enemies that fade back into the populace — not so much. Lessons will fade, and those who earned their PhDs in small wars will be passed over and left by the wayside.

U.S. Army War College professor Andrew Hill found the same neglect in the recent report of the National Commission on the Future of the Army, in which any reference to stability operations “is barely discernable.” As Scales put it, “here is the problem with that approach: The ability to win the big one is vital, but so is the ability to win the small wars. We paid a price for forgetting what we learned in Vietnam. I hope succeeding generations do not have to pay again.”

The U.S. government appears to be repeating the pattern insofar as its support for basic research on insurgency and counterinsurgency. During the early years of the Vietnam conflict, the U.S. government invested significant resources to support research and analysis efforts. This led to some very interesting and promising lines of inquiry by organizations such as the Special Operations Research Office, and scholars like Ted Gurr and Ivo and Rosalind Feierabend, among others. However, as Chris Lawrence recently pointed out, this funding was cut by the end of the 1960s, years before the war ended. After, the fruits of this initial research was published in the early 1970s, further research on the subject slowed considerably.

The emergence of insurgencies in Iraq and Afghanistan led to another round of research and analysis funding by the U.S. government in the mid-2000s. This resulted in renewed interest in the foundations built during the 1960s, as well as new analytical work of considerable promise. Despite the fact that these conflicts remain unresolved, this resourcing dried up once more by 2009 and government sponsored basic research has once more ground to a crawl. As Chris has explained, this boom-or-bust approach also carries a cost:

The problem lies in that the government (or at least the parts that I dealt with) sometimes has the attention span of a two-year-old. Not only that, it also has the need for instant gratification, very much like a two-year-old. Practically, what that means is that projects that can answer an immediate question get funding (like the Bosnia and Iraq casualty estimates). Larger research efforts that will produce an answer or a product in two to three years can also get funding. On the other hand, projects that produce a preliminary answer in two to three years and then need several more years of funding to refine, check, correct and develop that work, tend to die. This has happened repeatedly. The analytical community is littered with many clever, well thought out reports that look to be good starts. What is missing is a complete body of analysis on a subject. [America’s Modern Wars, 295]

The ambivalent conduct and outcomes of the recent counterinsurgencies generated hotly contested debates that remain unresolved. This is at least partly due to a lack of a detailed and comprehensive understanding of the phenomenon of insurgency and counterinsurgency. This state of affairs appears to be a matter of choice.