Civilians and Soldiers Achieving Better

After analyzing the problems of the past, this report offers recommendations to decisionmakers in the Executive Branch to improve chances of success in future complex contingency operations through more coherent U.S. policy and strategy.

Preface

iii

Figures

ix

Tables

xi

Summary

xiii

Acknowledgments

xix

Abbreviations

xxi

Approach

1

(6)

Background

1

(2)

Purpose of the Project

3

(1)

Assumptions

3

(1)

Approach

4

(2)

Phases of the Project

4

(1)

Scope of the Research

4

(2)

Organization Of This Report

6

(1)

Introduction

7

(12)

Pattern During the Cold War

7

(2)

Bipartisan Foreign Policy

7

(1)

Two-Sided Struggle

7

(1)

Internationalism in Abeyance

8

(1)

Clear Dichotomies

8

(1)

Changes After the Cold War

9

(2)

Smoldering Debate

9

(1)

Impartiality

9

(1)

Internationalism in Ascent

10

(1)

Blurred Boundaries

10

(1)

U.S. Leadership

11

(2)

Critical Need

11

(1)

Uneven Performance

12

(1)

Causes of the Uneven Performance

13

(6)

Less-Compelling Rationale

13

(1)

Lack of Confidentiality

14

(1)

Fitful Interagency Coordination

14

(1)

Civilian-Military Divide

15

(1)

Disagreement on the Military's Role

16

(3)

Overview of Organizations

19

(20)

National Security Council

19

(1)

State

20

(1)

Department of State

20

(1)

U.S. Agency for International Development

21

(1)

U.S. Information Agency

21

(1)

Defense

21

(2)

Department of Defense

21

(1)

Military Departments

22

(1)

Joint Chiefs of Staff

22

(1)

Unified Commands

22

(1)

Central Intelligence Agency

23

(1)

Department of Agriculture

23

(1)

Department of Commerce

24

(1)

Department of Energy

24

(1)

Department of Justice

24

(1)

Department of the Treasury

25

(1)

Federal Emergency Management Agency

25

(1)

Overseas Private Investment Corporation

25

(1)

U.S. Congress

26

(1)

United Nations System

26

(4)

United Nations Security Council

27

(1)

United Nations Department of Humanitarian Affairs

27

(1)

Department of Peacekeeping Operations

27

(1)

United Nations Food and Agricultural Organization

28

(1)

United Nations World Food Programme

28

(1)

World Health Organization

28

(1)

United Nations Children's Fund

29

(1)

United Nations High Commissioner for Refugees

29

(1)

United Nations High Commissioner for Human Rights

30

(1)

United Nations Development Programme

30

(1)

United Nations Educational, Scientific and Cultural Organization

30

(1)

Other International Organizations

30

(2)

International Red Cross and Red Crescent Movement

30

(1)

World Bank

31

(1)

International Monetary Fund

32

(1)

Regional Organizations

32

(2)

North Atlantic Treaty Organization

32

(1)

Organization for Security and Cooperation in Europe

33

(1)

Ad Hoc Organizations

34

(1)

Contact Group

34

(1)

International Criminal Tribunal for the Former Yugoslavia

34

(1)

Peace Implementation Council

35

(1)

High Representative

35

(1)

Nongovernmental Organizations

35

(4)

Catholic Relief Services

36

(1)

Cooperative for Assistance and Relief Everywhere

36

(1)

Medecins Sans Frontieres

36

(1)

Oxfam

36

(3)

Achieving Better Coordination

39

(44)

Attitudes Toward Planning

39

(9)

Interagency Process

40

(1)

Stages of the Process

41

(1)

NSC-Centered Model

41

(2)

Special Representative Model

43

(2)

Combined Model

45

(1)

Evaluating the Models

46

(2)

Planning

48

(11)

Need for Advance Planning

48

(4)

Anticipating Crises

52

(3)

Front End of Advance Planning

55

(3)

Political-Military Plans

58

(1)

After-Action Review

58

(1)

Field Operations

59

(24)

Lessons from Somalia

60

(4)

Lessons from Haiti

64

(5)

Lessons from Bosnia

69

(9)

Organization of Complex Contingency Operations

78

(5)

Recommendations

83

(14)

Achieve Consensus on Complex Contingency Operations

83

(1)

Make the Interagency Process Robust

83

(1)

Develop and Issue Authoritative Plans

84

(1)

Conduct Advance Planning

84

(1)

Bring Combatant Commanders into Interagency Planning

84

(1)

Invite Non-U.S. Agencies into the Planning Process

84

(1)

Encourage Civilian-Military Discourse

85

(1)

Improve Interagency Training

85

(1)

Establish Interagency Communications to the Field

85

(1)

Provide Civilian Surge Capability

85

(1)

Exchange Personnel Across Departments

86

(1)

Ensure Coordination in the Field

86

(1)

Charter Independent After-Action Reviews

86

(1)

Appendix

A. Terminology

87

(2)

B. Outline of a Political-Military Plan

89

(8)

Bibliography

97

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Civilians and Soldiers Achieving Better Coordination

Summary

Table of Contents

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