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All In: The Education of General David Petraeus by Paula Broadwell, with Vernon Loeb

The official biography of CIA Director General David Petraeus, by Harvard researcher Paula Broadwell, has long been anticipated in the .mil/COIN/NatSec/Foreign Policy communities and blogosphere.  I can hear pencils scrawling furiously away in the margins even as I type this post. 🙂

Broadwell,  herself a reserve Army officer, West Pointer, Harvard grad, doctoral student at King’s College War Studies Department , and by all accounts, an impressive up and coming individual,  had very extensive access to her subject – allegedly, far more than the official Army historian assigned to General Petraeus’ last command. Given the subject is General Petraeus, the precarious state of American policy in Afghanistan and 2012 as a circus of political excess, All In will be one of the few “must read” books this year.

And, I must commend Miss Mrs. Broadwell highly here, she will be donating 20 % of her net proceeds to help wounded veterans.

That said, in terms of reaction to this book, there will be blood.

Reviews of All In will afford the opportunity to tear the scabs off of the well-worn COINdinista/COINtra debate and rub salt in the exposed wounds – I for one am especially looking forward to reading future back to back reviews by Carl Prine and Thomas Ricks and Abu Muqawama vs. Colonel Gian Gentile. In the mainstream press, the opportunity for newspaper columnists to get in gratuitous potshots against figures like Presidents Bush and Obama, Dick Cheney, Don Rumsfeld, Robert Gates, Joe Biden, Hillary Clinton, Stan McChrystal and numerous others or grind partisan axes will be too tempting to resist, regardless of how relevant these remarks are to Broadwell’s biography of Petraeus. The looming specter of draconian cuts to defense budgets will also add to the rancor of the discussion of the book within the defense community.

Somewhere in that debate will be the book Broadwell actually wrote and within the book, perhaps, we will come to see David Petraeus. Or not.

Get your popcorn ready!

Right now, I am deep into reading the superb George Kennan biography by eminent diplomatic historian John Lewis Gaddis but All In is definitely next on my list.

And it will be reviewed.

Discussion has been emerging in the foreign policy blogosphere of   late  regarding sovereignty and the other day, Afghanistan scholar Antonio Giustozzi opined on coercion, a necessary tool of a state seeking to wield a monopoly of force.

Theory is good and the discussion is an important one with implications for US foreign policy, but it helps when debate is informed by empirical examples from practitioners.  Quesopaper, a blog by  someone out in the field  in Afghanistan has been dormant for a while, but sprang alive again with a timely post:

Rule of Law, The Afghan Springer Show 

….Rule of Law is one of the key aspects to “fixing” Afghanistan. When the Taliban dominated the country, they controlled the “courts.” As Taliban influence waned, the US and partner nations have sought to create a more traditional court system. I can’t speak intelligently on why “WE” decided to create a more western form of law in Afghanistan, but I can say, it’s not the correct approach.

I work in a remote district. It’s over an hour to the main provincial (think state) government center. The difference between the two places is about as extreme as possible. The villages, even the district center (think country govt) lack ANY essential services. There are no plumbing systems, no electricity, no garbage service…nothing. Yet, the people here survive; and dare I say? Thrive.

Like most farming folks, the people here like to be left alone. The people appreciate the Govt–Government of the Islamic Republic of Afghanistan aka “GIRoA”–but they only want so much help. Rule of Law doesn’t fit into their needs.

So, how do rural locals settle disputes?

I just recently worked with a local governor as he negotiated the resolution of a 25 year dispute. Dispute doesn’t really describe what happened…feud is more appropriate. Each side had multiple murders, one family had 1300 fig trees destroyed. Decades of money in dispute. The feud was complicated enough that the Taliban failed to resolve the issue in nearly seven years of negotiations. Negotiations require buy-in from many parties…I could go on about this, but I doubt I can make it any clearer…

Land disputes are among the thorniest local civil society issues in Afghanistan, and one where the generally corrupt and inept Karzai regime draws a particularly poor comparison with the Taliban insurgency’s ability to provide “rough justice” where the richer, more influential party to the dispute does not automatically win through bribery. Land claims are blood issues in peasant-agrarian societies in general and all the worse in honor cultures that tolerate vendettas – that the brutal Taliban could not force a settlement in this case, or did not dare to try – speaks volumes.

….Finally, our district (county govt) governor is called upon to start the process of reconciliation. This BTW is MAJOR progress for the legitimacy of GIRoA. It means the people trust this man to handle this dispute. It might become national news (for Afghanistan) though you will never hear this story on any US network or .com site (except quesopaper.com). After weeks of massaging each side, pulling out their story, commitments (commitment to settle is vital in these things) and “evidence.”

An aside about evidence…in a society that is mostly verbal and illiterate, nearly anything written can become something that it is not…WTF are you talking about Pietro? What I mean is, give someone who can’t read a document. That paper is written in a foreign language, with foreign letters. Tell him its a deed to a piece of land…wait 35 years. Now, tell that man’s grandson that the land he’s been farming for 10 years; that his family has worked for generations, isn’t actually his.

Now he has nothing; he can’t provide for his family. Tell him, his paper is a receipt for a Persian rug, not a deed…explain that he owes the real land owner for the use of that property and revenues generated. Let me know how that goes…if you smell cordite it probably didn’t go to well.

For very poor people who live at the margins of subsistence, the stakes could not be higher, which can make rolling the dice on private violence attractive (this is also why land reform programs are only a short term stopgap in economic development and reform. Agrarian population almost always exceeds arable land and as the plots get smaller, they are less productive).  Dying on your feet with a weapon in hand looks a lot more honorable to a hard-pressed farmer than watching your children waste away from starvation as the other villagers gossip about your plight.

A state with legitimate authority can preempt or suppress such private violence, but is also expected to solve the problem.

….Back to our story…The governor calls in Sharia/Islamic law experts and elders from both tribes and other community elders. Mix that group into a bunch of small rooms and start shifting groups from room to room…hours of discussions (which looks like arguing to me). Don’t forget, this thing hasn’t been settled before, it’s serious business, and here serious business is settled with an AK. At anytime the whole ordeal can melt into violence.

Success is fleeting. I have a gun, no fooling…I’m armed….

Go to quesopaper to find out what happened next. 🙂

Part of the problem is, as quesopaper indicates, our Western framework. We began experimenting with rule of law to settle property claims and commons rights starting, oh, in 14th century England with land enclosures and we did not really finish for good until after Reconstruction in the very late 19th century. That’s 500 years for the “Rule of Law” as we understand it to become the standard for 100 % of the population, 100% of the time.

And along the way, there was blood. Rivers of it. From the Highlands of Scotland, to the piney woods upcountry of Appalachia to the Black Hills and the great Western Range Wars. The gavel of the judge had to be preceded by the soldier’s rifle, the settler’s six shooter, the rebel’s musket and knives used in the dead of night.

Are Afghans in far rural villages closer to a Manhattan attorney or an English tenant whose access to the pasture has been closed off by his noble lord against all custom and ancient right? What quesopaer is seeing is “state building” from scratch, from the bottom up. Slow, painful, difficult to be certain, but more likely to be durable than imported abstractions imposed from the top down.

We are leaving Afghanistan, it is clear. Any state that we leave behind that can resist the Taliban must be able to stand behind and enforce a rule of law as Afghans understand and accept it.

As I had predicted, a global recession, budgetary chicken in Congress and national weariness after a decade of war in Afghanistan and Iraq have forced a public rethink of the prominence of counterinsurgency doctrine in America’s military kit.  Colonel Gian Gentile, long the intellectual archenemy of FM 3-24 and the “Surge narrative” has pronounced COIN “dead” and even CNAS, spiritual home of COIN theory inside the Beltway, is now advocating COIN-lite FID (Foreign Internal Defense). As this entire process is being driven by a global economic crisis, there is another aspect to this American inside-baseball policy story.

While COIN as the hyperexpensive, nation-building, FM 3-24 pop-centric version of counterinsurgency is fading away, irregular warfare and terrorism are  here to stay as long as there is human conflict. Moreover, as economic systems are to nation-states as vascular systems are to living beings, we can expect an acceleration of state failure as weak but functional states are forced by decreased revenues to reduce services and diminish their ability to provide security or enforce their laws. The global “habitat” for non-state, transanational and corporate actors is going to grow larger and the zones of civilized order will shrink and come under internal stress in the medium term even in the region that Thomas P.M. Barnett defined as the “Core” of globalization.

The theory of Fourth Generation Warfare is helpful here. Many people in the defense community object to 4GW thinking, arguing that it is a poor historical model because it is overly simplified, the strategic ideas typified by each generation are cherrypicked and are usually present in many historical eras (albeit with much different technology). For example, eminent Clausewitzian strategist Colin Gray writes of 4GW in Another Bloody Century:

….The theory of Fourth Generation Warfare or 4GW merits extended critical attention here for several reasons. It appears to be a very big idea indeed. It’s author [ William S. Lind] and his followers profess to be able to explain how and why warfare has evolved over the past 350 years and onto the future….

….Talented and intellectually brave strategic theorists are in such short supply that I hesitate before drawing a bead on Lind and his grand narrative of succeeding generations of warfare. Nonetheless, there is no avoiding the judgment that 4GW is the rediscovery of the obvious and the familiar. 

4GW theory is not something that can be defended as having sound historical methodology. However, it works well enough as a strategic taxonomy of mindsets and political environments in which war is waged; particularly with the inclusion of the van Creveldian assumptions of state decline, it is a useful tool for looking at warfare in regions of weak, failing and failed states. The same global region Dr. Barnett has termed “the Gap” in his first book, The Pentagon’s New Map.

Tom predicated his geostrategy on the power of globalization being harnessed with judicious use of Core military power to “shrink the Gap” and provide connectivity as an extremely powerful lever to raise up billions of the world’s poor into a more stable, freer and middle-class existence. While that still holds, the flipside is that times of  sharp economic contraction limit the ability of the Core, led by the United States, to intervene robustly, permitting the “bad guys” to make use of connectivity and black globalization for their own purposes. Where the great powers are disunited, disinterested or increasingly in the case of European power projection, disarmed, the Gap could potentially grow.

A new Iraq or Afghanistan sized campaign is not in the American defense budget for at least a decade. Or NATO’s. Hence the newfound interest in cheaper alternatives to massive intervention on the ground, for which the Libyan campaign might charitably be classed as an “experiment” ( where it was not simply bad strategy and negotiated operations) or as a multilateral reprise of Rumsfeldian ideas of transformative, light and fast military force mashed up with Reagan Doctrine proxy warfare, justified under a new ideological theory of R2P.

These are rational policy responses to conditions of parsimony, but it also indicates a coming era of strategic triage rather than grand crusades in using military force to stabilize parts of the global system.  The US and other great power  are going to be more likely to follow Teddy Roosevelt’s advice to “Do what you can, where you are, with what you have” than they are to heed JFK’s call “to pay any price, bear any burden”. The politics of hard times means that we will be minimizing our burdens by replacing, where we can, boots with bots, bullets with bytes and Marines with mercs. Not everywhere, but certainly on the margins of American interests.

Beyond those margins? We will aid and trade with whatever clients can maintain a vestige of civilized order without too much regard to the niceties of  formal state legitimacy. Too many states will be ceding autonomy to subnational and transnational entities on their territory in the next few decades and we will have to abide by that reality if regions of the world become Somalia writ large. What to do? A number of recommendations come to mind:

• Get our own economic house in order with greater degrees of transparency and adherence to rule of law in our financial sector. Legitimacy and stability, like charity, begins at home.
• Adopt policies that strengthen the principle of national sovereignty and enhance legitimacy rather than weaken or erode it. This does not mean respecting hollow shells of fake states that are centers of disorder, but respecting legitimate ones that effectively govern their territory
• Foreign policies that reject oligarchical economic arrangements in favor of encouraging liberalization of authoritarian-autarkic state economies prior to enacting political reforms ( democracy works better the first time on a full stomach).
• Create a grand strategy board to advise senior policy makers and improve the currently abysmal level of strategic calculation and assessment prior to the US assuming open-ended commitments to intervention
• Accept that the Laws of War require a realistic updating to deal with the international equivalent of outlaws, an updating that contradicts and rejects the 1970’s era diplomatic effort to privilege irregular combatants over conventional forces.
• Fighting foreign insurgencies is something best done by primarily by locals, if willing, with our aid and advice. If those with the most to lose are not willing to stand, fight and die then they deserve to lose and the US should either eschew getting involved at all or resolve to secure whatever vital interest that exists there by brute force and make certain that reality is clearly communicated to the world (i.e. Carter Doctrine).  Truly vital interests are rare.

Will COIN go Gentile into that good night?

Colonel Gian Gentile at WPR argues that the US Army must put away tactical things of counterinsurgency and assume the responsibilities of strategy:

COIN is Dead: U.S. Army Must Put Strategy Over Tactics

There is perhaps no better measure of the failure of American strategy over the past decade than the fact that in both Iraq and Afghanistan, tactical objectives have been used to define victory. In particular, both wars have been characterized by an all-encompassing obsession with the methods and tactics of counterinsurgency. To be sure, the tactics of counterinsurgency require political and cultural acumen to build host-nation governments and economies. But understanding the political aspects of counterinsurgency tactics is fundamentally different from understanding core American political objectives and then defining a cost-effective strategy to achieve them. If it is to avoid repeating the mistakes of the past decade, American strategic thinking must regain the ability to link cost-effective operational campaigns to core policy objectives, while taking into consideration American political and popular will….

Dr. Gentile is spot on here, but with a caveat that a serving officer cannot readily state: the political class and civilian leadership
of the USG are failing to provide the American military with the appropriate grand strategic and policy guidance
with which to build the strategic bridge between policy and operational art. This is not a small problem.

The military cannot – and more importantly should not  under our constitutional system – be the sole arbiters or enunciators of American strategy. The proper role of the senior military leadership are as junior partners working hand in glove with policy makers and elected officials to fit the use of military force or coercive threat of force with our other levers of national power to advance American interests at acceptable costs to the American people. If the military’s civilian superiors cannot or do not take the lead here in crafting strategy, the US military is unable to step into that inherently political vacuum and it would be an usurpation for them to try. Operational art is as far as they can go on their own authority while remaining on safe constitutional ground.

Rather than seeing the past 10 years of combat in Iraq and Afghanistan as a potent reminder of war’s complexity and, more importantly, of the limits to what it can accomplish, the American military has embraced the idea that better tactics can overcome serious shortcomings in strategy and policy. The ancient Chinese strategist Sun Tzu said thousands of years ago that “strategy without tactics is the slow road to victory,” but “tactics without strategy is the noise before defeat.” Though still relevant, Sun Tzu’s brilliant formulation of the relationship between tactics and strategy is nowhere to be found in current American strategic thinking.

I fear the real stumbling block is that a coherent and effective national strategy is viewed suspiciously in some quarters as a constraint on the tactical political freedom of action of policy makers and politicians to react in their own self-interest to transient domestic political pressures. This view is correct – adopting a strategy, while an iterative process – involves opportunity costs, foreclosing some choices in order to pursue others. Having a realistic strategy to acheive specific ends with reasonable methods and affordable costs is generally incompatible with “keeping all options open”.

Even on purely domestic issues, which politicians have greater familiarity and expertise than foreign and military affairs, the debacle with the borrowing limit and the “supercommittee” demonstrate we have a political class in Washington that is virtually allergic to making choices or assessing costs clearly and honestly. They see even less well in matters of war and peace.

….Future threats for U.S. ground forces promise to be quite lethal, ranging from state-on-state warfare to hybrid warfare to low-end guerilla warfare. Constabulary forces based on light infantry and optimized for wars like Iraq and Afghanistan will be highly vulnerable and open to catastrophic destruction in this lethal, future environment. Instead, future land battlefields demand a ground force built around the pillars of firepower, protection and mobility. Moreover, this future ground force needs to be able to move and fight in dispersed, distributed operations in an age where the accessibility of weapons of mass destruction makes a ground force that concentrates vulnerable to annihilation. Much will have to change in order to transform the Army and Marines to ground formations of this type, but that transformation is critical, and it will not be accomplished if military thinkers remain obsessed with counterinsurgency tactics.

To build American ground formations for an unpredictable future, counterinsurgency operations in Iraq and Afghanistan offer very few strategic guideposts. To argue otherwise is to commit the U.S. Army and Marines to strategic irrelevance in the years and decades ahead.

I would guarantee that the US will be plagued with irregular warfare for as long as we have to co-exist with the rest of the world. What is probable, in my view, is that we are quite likely to face several different kinds of serious security threats at the same time  – say, a terror-insurgency spilling over from Mexico coinciding with a possible conventional war with a regional power while also defending against a run on the dollar if China tries to “Suez” the US during a third country crisis. The luxury of different threats in convenient sequence is unlikely to happen and American military capabilities must be broad and adaptive.

Hat tip SWJ Blog

ADDENDUM:

The Post-COIN Era is Here

Is COIN Dead?

[by J. Scott Shipman]

The Human Face of War by Jim Storr 

[Zen reviewed this book earlier here. I had forgotten that I wrote a rather long review at Amazon after finishing in January 2010. Perhaps Storr will gain a wider audience as a result.]

Mr. Storr’s The Human Face of War will be I predict, a book studied by military professionals (and smart policy makers) for years to come. Using straightforward prose, Mr. Storr seeks to provide a philosophical approach to war—as he says, “In practice we are concerned so much with war as with waging it.” Storr goes on to differentiate between war and warfare; where war is an “issue” with history and warfare dedicated to methods/methodology. Storr rejects notion that war is art or science, and prefers instead to embrace pragmatism and limited empiricism. He points out correctly: “Pragmatism has obvious application to warfare. A significant aspect of warfare is `a process of trial and error; seeing what wins and exploiting it.” Storr continues that “empiricism is not just trial and error: it is a logical process based on structuring observed facts.” What “works” will suggest a way ahead. 

Storr uses broad themes of what has worked and what has not worked in military history by explaining the nature of combat and tools and models available to the practitioner. He uses Clausewitz’s “dialectic of aims and means” in conjunction with Systems Theory to describe the holistic nature of military units; where effective/efficient output is dependent on input—where a good outcome is “winning” (as Storr repeatedly observes throughout the book, armies aren’t paid to come in second). Hence, organization of military units is fundamental; efficient/effective organizations are more likely to succeed. He observes: “Cohesion and collective performance indicate the whole is greater than the sum of the parts. There is a systemic effect, and we should see armed forces as systems.” 

Storr is a proponent of forcing decision making to the folks on the ground using brief and succinct communications. His chapter on Commanding the Battle is excellent. Storr advocates lean command staff’s and dispersed decision making. “We should employ the best brains in small groups, rather than try to assemble a collective brain.” He points out that “when staff numbers are reduced, the effectiveness of HQ improves.” “Reducing staff numbers would increase speed with which they could get things done.” [Amazingly, Storr quotes a work from 1998 that reports a typical Western division commander has 600 people supporting!—and that number has, I’m sure increased in 10 years.] He concludes this excellent chapter making a distinction between technology and the human factor: “…the future is not digital: it’s human. What is needed is things that bind talents together as a team, not more bandwidth…given time, resources, open minds and not much money we could revolutionize land tactical command. The key problems are human, cultural and institutional.” 

Storr asserts that successful modern commanders are most likely intuitive thinkers and possess the ability to learn from experience. He suggests further the “tendency to learn is more critical. It implies a tendency to reflect on experience and to learn from it, to maximize the benefit of the experience.” This tendency is key to the development of “skills”. He encourages a “permissive man-management regime that allows those who can learn rapidly from their experience to do so.” At the opposite end, Storr makes clear the unsuitability of many leaders who use bullying tactics and fear to motivate. 

Storr concludes by observing that “institutional conservatism” inhibits armed forces from improving significantly during times of peace; that “the current size and shape of Western armies reflect issues that are not primarily related to warfighting effectiveness.” He insists that doctrine should be explicit, relevant,(descriptive and where appropriate, prescriptive), coherent, and practical. The short tours common in western armies harm team integrity—which is “huge”. Innovation is vital, and in many cases military members aren’t with a unit long enough to have the experience necessary to truly innovate. Storr advocates “experience is the best way to achieve practical coordination and overcome the fog of war, as long as the experience gained is positive.” He discourages the common use of lieutenant-colonels in jobs where a captain or major could function/thrive/learn; as these junior officers will have less experience when they are promoted and will have probably developed the habit of “referring decisions upwards, and hence develop little initiative.” 

According the Storr, the “human” aspect of war should take prevalence over technology. He acknowledges the utility of technology, but asks the reader to “…pause and look for a moment at the Vietnam War, which suggests that superior technology is not always the deciding factor.” [9-11 is illustrative of this point on the “terror” side; determination and box cutters wreaked havoc.] 

My review does not do justice to the wealth of information, insight, and counsel in Storr’s book and I quote him frequently because his style is better than a summary. This book was aimed at a narrow audience, hence the high price. When I began, I was concerned about Storr’ opinions concerning John Boyd’s OODA loop; but in late 2009 I rejected Boyd’s deterministic underpinnings of OODA—Storr’s pragmatic and partial empiricism makes more sense. OODA remains, in my humble opinion, a valuable and versatile methodology in both the military/law enforcement and business arenas. 

This book is highly recommended; particularly for junior officers and NCO’s—the price is high, but what you will gain will be worth the cost.

UPDATE 11.17.2011: Jim Storr contacted me and confirmed the issue of a paperback for about $40.