zenpundit.com

John Robb is testified today before the House Armed Services Subcommittee on Terrorism, Unconventional Threats and Capability on Terrorism and the New Age of Irregular Warfare: Challenges and Opportunities. John put up a PDF of his testimony at Global Guerillas, here is a snippet but you should read John’s text in full:

MY TESTIMONY

….Against this dark picture, a combination of assault by a global economic system running amok and organic insurgency by superempowered small groups, there are few hard and fast recommendations I can provide. It’s complex. However, it is clear:

• We will need to become more efficient. Force structure will shrink. Most of the major weapons systems we currently maintain will become too expensive to maintain, particularly given their limited utility against the emerging threat. Current efforts from the F-22 and the Future Combat System appear to be particularly out of step with the evolving environment. Smaller and more efficient systems such as unmanned aerial vehicles and coordination systems built on open platforms (as in a Intranet) that alloworganic growth in complexity make much more sense.
• We should focus on the local. In almost all of these future conflicts, our ability to manage local conditions is paramount. Soldiers should be trained to operate in uncertain environments (the work of Don Vandergriff is important here) so they can deal with local chaos. Packages of technologies and methodologies should be developed to enable communities in distressed areas to become resilient – as in, they are able to produce the food, energy, defense, water, etc. they need to prosper without reference to a dysfunction regional or national situation. Finally, we need to get build systematic methods formanaging large numbers of militias that are nominally allied with us (like Anbar Awakening, Pakistan’s Frontier Corps, etc.). Even a simple conversion of a commercial “customer relationship management” system would provide better institutional memory and oversight than we currently have.
• We need to get better at thinking about military theory. Military theory is rapidly evolving due to globalization. It’s amazing to me that the structures and organizations tasked with this role don’t provide this. We are likely in the same situation as we wereprior to WW2, where innovative thinking by JFC Fuller and Liddell Hart on armored warfare didn’t find a home in allied militaries, but was read feverishly by innovators in the German army like Guderian and Manstein. Unfortunately, in the current environment, most of the best thinking on military theory is now only tangentially associated with the DoD (worse, it’s done, as in my situation, on a part time basis).

A classy move on John’s part to take the time during his testimony highlight Don Vandergriff’s program of adaptive leadership ( another guy whom Congress should be hearing from)!

 Chairman Ike Skelton (D -Mo), judging by his impressive reading list in military affairs, is a Member of Congress who would seem to be keen to hear what John had to say. I’m very pleased to see Congress drawing upon the insights of strategic thinkers like John Robb and Tom Barnett, instead of the usual parade of niche specialists from the Beltway tanks.

Galrahn, writing at USNI Blog about my recent post on Mexico, raised an important question: “Are Weak States a worse outcome from the perspective of U.S. national security than a Failed State?”. Galrahn comes down squarely against the “muddling through” of a weak state:

Failed States Are Worse Than Weak States

….My point would be this: there is no value in the cartels overthrowing the Mexican government because its existence helps them more than its absence helps them.

But this is my larger point. There are currently zero, none, nada 4GW/COIN/Whatever military solutions for failed states; our emerging 4GW/COIN/Whatever doctrines, strategies, and theories only apply for weak states that have legitimate governments that can be supported. Failed states are problems that can be handled, even in an ugly way, by conventional military forces. The danger to US strategic interests is not failed states, as is often claimed, rather the real danger to US strategic interests always comes from weak states.

The ugly truth is, failed states allow for freedom of action by military forces without consequence; weak states do not allow such freedom of military action. Afghanistan before 9/11 was a weak state, not a failed state, thus Al Qaeda operated under the state governance of the Taliban and had top cover to carry out its evil agenda. In Somalia, pirates operate in a failed state, and as a failed state the west has taken military action, including cruise missiles, hostage rescue attempts with special forces, and other military activities without consequence against targets as they have been identified. The danger Somalia poses in the future to US strategic interests is not that Somalia continues as a failed state, rather if it were to become a weak state with a recognized legitimate government strong enough to say, eliminate the pirate threat while still being too weak to prevent the training and development of terrorist cells.

….but because it is a weak state, we face serious and complex diplomatic obsticles in taking freedom of action, even along our own national border. In a failed state, we could do what needed to be done to take out the bad guys. As a weak state, we are far more limited in options, and must account for the legitimate governments perspective a lot more than we would if Mexico was a failed state.

Zenpundit may or may not be right regarding the threat posed by Mexico, but if he believes Mexico as a failed state is more dangerous than a Mexico as a weak state, he is mistaken.

Read the whole post here.

I found Galrahn’s argument to be very intriguing. There’s the issue of Mexico specifically in his post and then Weak States being worse than Failed States as a general rule. First, Mexico:

The thought experiment I penned previously aside, Mexico is not yet a Failed State and I hope it does not become one – though I would not wager a mortgage payment on it staying away from catastrophic failure. Mexico is definitely, in my view, already a Weak State suddenly resisting the process of being “hollowed out”, slowly, by vicious drug cartels. I wish President Calderon well in his efforts to crush the narco networks, but just as America cannot avoid admitting that our drug laws are impacting Mexico severely, let’s not let the fact that Mexico’s ruling oligarchy has also brought this disaster on themselves with their self-aggrandizingly corrupt political economy escape comment.

The crony-capitalist-politico ruling class in Mexico ruthlessly squeezes their poor but ambitious countrymen to emigrate and is too greedy to even invest properly in the very security services that keeps their own state apparatus afloat. Mexico is not a poor country, their GDP is in the same league as that of Australia, India or the Netherlands. Mexico can afford to pay for a professional police, a functioning judiciary and a larger Army at a minimum. On a more reasonable level, Mexico can also afford basic public education and core public services for it’s citizens and could liberalize it’s economy further to stimulate entrepreneurship. They choose not to do so. An elite that stubbornly refuses to reform, even in the interest of self-preservation, is not a group likely to make statesmanlike decisions in the Cartel War.

If Mexico fails, really fails on the order of Lebanon in the 1980’s or Somalia since the 1990’s, Galrahn is correct that the U.S. military would, in the last analysis, have a free hand to do things in Mexico that could not be remotely contemplated today. However the  second and third order effects of a Failed State Mexico are calamitous enough that I’d prefer to skip enjoying that kind of “free hand”. Unless Mexicans have something in their DNA that makes them different from Iraqis, Afghans, Cambodians or Kosovar Albanians, extreme levels of violence in one area will cause them to move to areas of relative safety in another place. Internal displacement will precede external displacement. Elite flight will precede the flight of the masses.

That brings us to the general question of, is a Failed State better or worse than a Weak State whose tattered shreds of international legitimacy prevent robust foreign intervention? I am going to “punt” by inclining toward judging on a case-by-case basis. “Failed State Botswana” is not likely to impact the world very much nor is “Functional State Congo” going to look very good next to anything except Congo as the Failed State that it is. Now “Failed State China” or “Failed State Russia”, that has consequences that are the stuff of nightmares.

What do you say? Which is worse: Weak State or Failed State?

ADDENDUM:

SWJ Blog links to a Washington Post series on the Cartel War

My previous post stirred some interest in the blogosphere on the issue of Mexico being in danger of becoming a “Failed State” and prompted others to respond with Mexico related analysis of their own. Here are some that caught my eye:

           POINT – Mexico is a Failed State or at least in some danger of becoming so:

Threatswatch.org (Fraser) Los Zetas and the Denial of Mexico’s Failed State Status

The softening of words and the aversion to stating the obvious by the Administration simply obliterates the reality that President Felipe Calderón of Mexico “leads” a country dominated by the cartels and not governed by the federal government. The transparent denial of the recent Joint Operating Environment report is troubling at best.

To better understand just how close to the precipice he is, it might be worthwhile to take another look at the organization (and movement) of Los Zetas. As a reminder, Los Zetas are a paramilitary group tied to the Gulf Cartel. Their origins and their evolution from being deserters from the Mexican special forces to a criminal organization is chronicled in a report from International Relations and Security Network

….With each of the original members training at least another ten, they grew to over 300 strong by 2003. In just the first quarter of 2009, Los Zetas (the organization) has been linked to a death threat against the president of Guatemala, the hand grenade tossed in Pharr, Texas and various other criminal acts. The ranks of Los Zetas has grown, and strikingly, they have broken ranks with the Gulf Cartel. Over time however, and with the deaths of some of the original Zetas, they have morphed into an organization. This is a very important distinction to note.

RBO – Are Afghanistan, Pakistan, Mexico ‘failed states’? If so, then what?

….In particular there is recent debate as to whether Mexico is/is not a failed state. If it is, then we ask whether its “failed” status is on a par with such other failed states as Pakistan and Afghanistan? – Even though there are those who do not subscribe to the notion that either of them is a failed state.

As always, let’s start at the beginning. What is a failed state?

In the simplest of definitions, a failed state is one that has a “shattered social and political structure.”

Writing December 1999 for the International Review of the Red Cross, Daniel Thürer, J.D. (right), Professor of International Law, European Law, Constitutional Law and Administrative Law at the University of Zurich, said

Failing States are invariably the product of a collapse of the power structures providing political support for law and order, a process generally triggered and accompanied by “anarchic” forms of internal violence.

Dr. Thürer wrote that former Secretary-General of the United Nations, Boutros Boutros-Ghali, described this situation in the following way (emphasis added):

A feature of such conflicts is the collapse of state institutions, especially the police and judiciary, with resulting paralysis of governance, a breakdown of law and order, and general banditry and chaos. Not only are the functions of government suspended, but its assets are destroyed or looted and experienced officials are killed or flee the country. This is rarely the case in inter-state wars. It means that international intervention must extend beyond military and humanitarian tasks and must include the promotion of international reconciliation and the re-establishment of effective government. States in which institutions and law and order have totally or partially collapsed under the pressure and amidst the confusion of erupting violence, yet which subsist as a ghostly presence on the world map, are now commonly referred to as “failed States” or “Etats sans gouvernement”.

Jay Fraser, who has been watching developments in Mexico for some time, drills down on the most violent and fastest evolving faction among the cartel groups in Mexico. Procrustes concentrates on the “Failed State” concept and examines how conditions in Mexico compare to academic yardsticks and the case studies of Afghanistan and Pakistan, two countries that inevitably crop up in discussions of failed and failing states.

          COUNTERPOINT – Mexico is not a failing state or has greater resilience than experts are acknowledging:

Apropos Two Theories – Why Mexico may NOT fall apart – and a way to think about it

I’ve never seen so many American analysts and journalists sounding alarms about Mexico – most for good reasons, others for their own agendas. And it’s true, parts of Mexico have turned awfully violent, barely governable. Government controls have weakened, and security trends are adverse. Domestic terrorism and insurgency are not presently the problem; it’s the extreme crime and corruption, driven by the drug cartels and other criminal gangs.

….Yet, I’m struck that long-time American experts who specialize on Mexico are not providing counter-arguments. A few Mexicans are, lately Enrique Krauze. But no Americans I know of (though I’ve not searched exhaustively).Shouldn’t analysts and journalists who specialize on Mexico be doing a better job of wondering whether and why the growing alarmism may be wrong – again?When I worked as a specialist on Mexico, I experienced three or four periods when Mexico seemed to be on the verge of instability, in particular:

• In 1968, at the time of the student uprising and its military suppression (I was then a graduate student studying in Mexico City).
• During 1984-8, when a few U.S. government analysts claimed that Mexico was about to collapse due to multiple economic, political, and other crises.
• In 1994-5, when the Zapatista uprising raised new specters of widespread insurgency, if not terrorism.
  

Each time Mexico remained stable and recovered. And it did so mostly for reasons that American analysts had not understood or anticipated well at the time – including American experts on Mexico who did not buy into the alarmism.In these three instances, the key stabilizing factor turned out to be some kind of social or organizational network that American analysts were barely aware of:

• In 1968, it was intra-elite networking that revolved around the mysterious camarilla system (or so I think, though I was just a grad student then).
• In the mid 1980s, it was familial and other social networks that cushioned the effects of unemployment and other economic displacements.
• In 1994, it was the roles played by newly-formed networks of human-rights and other activist NGOs, first in calming the Zapatista scene, later in monitoring the 1994 presidential election campaign.

Conditions in Mexico look worse than ever this time around – much worse, not just along the U.S. border, but everywhere that the drug cartels are powerful. So I’m not suggesting optimism, but rather a search for additional factors that may moderate the equations of gloom.What might keep Mexico from disintegrating this time? My guesstimate is that networks will be the decisive factor again. And the networks that will matter most this time are:

1. Informal intra-elite social networks that reflects what’s left of the old camarilla dynamic.
2. Cross-border organizational networks for U.S.-Mexico security (military, police, intel) cooperation

David Ronfeldt, for new readers here, is a major “edge” thinker in the national security field at RAND and is a co-author (with John Arquilla) of the influential “classic”,  Networks and Netwars: The Future of Terror, Crime, and Militancy , which sits on my shelf about two feet from me as I type this. As it happens, Ronfeldt also specialized in Mexican and Latin American security as an analyst during the Cold War which gives means that his caveats are worth careful consideration. Frankly, we are all better off if Ronfeldt is correct and the “alarmists” are wrong, though I think the grim state of affairs south of the Rio Grande is deterring most Mexico experts  from going out on a limb to make positive predictions.

WASHINGTON, DC –  Flanked by the embattled President of Mexico, Felipe Calderon and the Secretary of Homeland Security Janet Napolitano, a weary looking President Barack Obama used a press conference to angrily denounce as “Alarmist and inflammatory” a recent report issued by the conservative Heritage Foundation that declared the massive chain of UN administered Mexican Refugee camps in Arizona, New Mexico and Texas as “a bottomless well for narco-insurgency” and “a threat to the territorial integrity of the United States”. The camps, home to at least 2.5 million Mexican nationals, are dominated by the “Zetas Confederales”, a loose and ultraviolent umbrella militia aligned with the feuding Mexican drug cartels that now control upwards of 80 % of Mexico.

President Obama’s political fortunes have been reeling recently in the wake of high profile incidents that include the kidnapping of his Special Envoy for Transborder Issues, former New Mexico governor Bill Richardson, and the car bombing assassination of popular California Governor Arnold Schwarzenegger that killed 353 people in Sacramento last month. Both events have been tied directly to factions of Zetas “hardliners” who operate with impunity on both sides of the US-Mexican border. President Obama used the conference to point to the “clear and hold” COIN strategy that has recently restored order and even a degree of tourism to Las Vegas, once the scene of bloody street battles between Zetas, local street gangs and  right-wing American paramilitary groups, as a sign of the success for his administration.  Democratic leaders on Capitol Hill remain skeptical and say that it is likely that President Obama will face a primary challenge next year from Senator Jim Webb (D- Va), a former Secretary of the Navy in the Reagan administration, who called the president’s COIN strategy “The right course of action” but ” Two years too late”….

That fictional scenario above is offered as a thought experiment.

Thursday, in a statement that was issued in part for public diplomacy purposes, DNI Adm. Dennis Blair, dismissed any strategic implications regarding the strength of Mexico’s drug cartels that the Mexican government is struggling to suppress:

Mexico is in no danger of becoming a failed state. [Let me] repeat that. Mexico is in no danger of becoming a failed state. The violence we see now is the result of Mexico taking action against the drug cartels. So it is in fact the result of positive moves, which the Mexican government has taken to break the baneful influence that many of these cartels have had on many aspects of Mexican government and Mexican life.

While it might be tempting to ask what the good Admiral is smoking, Blair is neither a naif nor a fool but a very experienced and saavy intelligence manager who is engaged in pushing a political line of the Obama administration, in deference to the wishes of the government of Mexico. The line is being peddled on many fronts; Homeland Security Secretary Janet Napolitano has just declined offers for increased appropriations for improving border security in favor of “surging” Federal agents on a temporary basis (i.e. a political show that will accomplish nothing). Here is SECSTATE Hillary Clinton on the same subject on the same day as Adm. Blair while on an official visit to Mexico:

On Thursday, Mrs. Clinton noted that no official of the Obama administration had ever used the phrase “failed state.” She said Mexico faced a “public safety challenge,” likening it to the surge of drug violence in American cities in the 1980s. And she lavished praise on the Mexican president, Felipe Calderón, for taking strong measures against the drug cartels.

This line that Mexico is fundamentally sound, while helpful to President Calderon’s political standing when expressed in public, is analytically speaking, sheer nonsense, and if enforced in private, counterproductive to having sober USG interagency planning sessions to make certain that worst case scenarios, like the one imagined above, never come close to materializing. Such politicized groupthink also interferes with effective cooperation with Mexico to address a 4GW type problem that has already mestastasized to a dangerous degree into American territory. Earlier, while still free of Mexican diplomatic and political pressure, the U.S. military accurately assessed the potential threat of Mexico devolving into a failed state in this JFCOM planning document (we won’t be seeing anything like this in public again, barring leaks):

In terms of worst-case scenarios for the Joint Force and indeed the world, two large and important states bear consideration for a rapid and sudden collapse: Pakistan and Mexico.

….The Mexican possibility may seem less likely, but the government, its politicians, police, and judicial infrastructure are all under sustained assault and pressure by criminal gangs and drug cartels. How that internal conflict turns out over the next several years will have a major impact on the stability of the Mexican state. Any descent by Mexico into chaos would demand an American response based on the serious implications for homeland security alone.

Banning terminology like “failed state” or admission of adverse data points from Mexico or the Southwestern U.S. (!) into an integrated analytical picture because the self-absorbed and greedy oligarchy that rules Mexico heatedly objects, is a recipe for policy failure and “snowballing” interrelated problems as each new development is inadequately addressed for political reasons. This new eggshell to tread carefully upon is going to be added to our longstanding, politically determined, refusal to contemplate our own drug policy honestly in light of it’s effect on our national security interests (We are turbocharging guerillas, Islamist insurgents, terrorists and criminal networks all over the globe with billions of American narco-dollars and corrupting and demoralizing our own allies in the process).

If the current situation in Mexico existed anywhere else in the world, our national security elite would already be discussing the potential for a mass exodus of refugees at given levels of escalating violence. The United States government conceives of the border in terms of an economic immigration problem not as a political mass-migration problem; such an event, spilling over into the hot deserts of the American border states, would very likely overwhelm the capacity for adequate humanitarian response. A Katrina moment in the cacti.

Recall the difficulties the Carter administration had with the relatively minor refugee influx in 1980 known as the Mariel Boatlift when 120,000 Cubans were permitted by Fidel Castro to flee the Communist paradise for life in the United States, along with imprisoned criminals and mental patients whom Castro deported along with the boatlift. A full blown civil war in Mexico could generate 20 to 30 times that number of refugees, among whom narco-guerillas or terrorists or independent bad actors could operate freely, much as refugee camps elsewhere in the world have been breeding grounds for militias, criminal organizations and terrorists.

SECSTATE Clinton, at least, should know all of this very well. The handling of the Marielitos issue by Jimmy Carter probably cost her husband the governorship in Arkansas and led him later as President to enforce a very tough line against Haitian refugees, fearing a deluge of desperately poor Haitians fleeing dictatorship and internecine political violence. It would be far better to prioritize Mexico as a national security issue today, than let it evolve into a transnational powder keg tomorrow. There are, I must observe, far more Mexicans than Haitians in this hemisphere.

But proper response requires empirical investigation and analytical clarity, followed by sensible and determined policy designed to short-circuit negative trends, not empty political assertions designed to tread water, obfuscate and delay action. We have time, but not unlimited time.

(Special thanks to Morgan, Pundita and John Robb for their insights, concerns and/or suggested links yesterday on this issue which were helpful in clarifying my thoughts).

ADDITIONAL LINKS:

State of Siege: Mexico’s Criminal Insurgency (Full PDF Article)   Stratfor reports on Mexico, news ignored by our mainstream media

Latest Academic Mexico Trip Report    “Mexico: On the Road to a Failed State?”    Mexico’s Instability Is a Real Problem

Mexico – Failed State/Failed Policies?   Among top U.S. fears: A failed Mexican state  Why Vicente Fox is going straight to Hell 

MEXICO’S BAZAAR OF VIOLENCE   What if A State Failed and Nobody Cared?   American Narcotics: $10 Billion In Mexico

Mexico: Growing Terror and Close to Collapse    The effects of our drug war in Mexico

Mexico is not a poor country   Assessing the threat at our southern border    Mexico’s Columbian Exchange    State of War

 Look who’s sneaking into the country using known drug routes   Mexico plagued by myriad interlaced netwars – a TIMN analysis

SWC Thread (Slapout) w/ Links    Mexico’s Struggle with ‘Drugs and Thugs’ (Full PDF Article) 

Sites Linking to this Post:

Soob – Top shelf analysis of Mexico’s civil war and the looming cross border nightmare NEW!

Newshoggers.com (Hynd) – Is Mexico A National Security Threat? NEW!

TDAXP – Recommended Reading  NEW!

Fausta’s Blog – The “Who painted it?” Carnival of Latin America and the Caribbean 

RBO – Zenpundit: A Mexican Standoff with Reality 

MountainRunner – It sure is quiet around here… a few links and musings during the silence 

Threatswatch.org (Schippert) – Exposición Perro y Caballo de la Administración Obama 

John Brown’s Public Diplomacy – March 30 

Peace Like a River – Cables, dispatches and memoranda 

SWJ BLog – A Mexican Standoff with Reality…

Committe of Public Safety – Cartel War Zen

Pundita – Washington continues to plays ostrich about Mexico (Riehl World View – Viva la Revolucion ; Wretchard – Our Southern Neighbor)

HG’s World – Zenpundit Channels Orson Wells in War of the Narco-Cartels

Chicago Boyz – A Mexican Standoff with Reality

More as they develop….

Is it me or is it really weird that we get more media coverage about predator drone kills of Taliban chieftains in Waziristan than the President of the United States openly speculating about putting troops on  our border with Mexico?

 President Obama weighed in Wednesday on the escalating drug war on the U.S.-Mexico border, saying that he was looking at possibly deploying National Guard troops to contain the violence but ruled out any immediate military move.

“We’re going to examine whether and if National Guard deployments would make sense and under what circumstances they would make sense,” Obama said during an interview with journalists for regional papers, including a McClatchy reporter.

“I don’t have a particular tipping point in mind,” he said. “I think it’s unacceptable if you’ve got drug gangs crossing our borders and killing U.S. citizens.”

I’m afraid that we are already at that tipping point.  Perhaps the Department of Justice has better uses for scarce resources than investigating a Sheriff, at the political behest of far leftwing Congressmen, for enforcing U.S. immigration laws. Yeah, I’m sure Sheriff Joe is a media hound and something of an abrasive jerk but he’s enforcing the law and we have far greater security priorities than carrying out the ideological vendettas of New York Democrats. Like tracking down Zeta killer teams operating inside the U.S. ?

Failed State Mexico Links:

State of Siege: Mexico’s Criminal Insurgency (Full PDF Article)   Stratfor reports on Mexico, news ignored by our mainstream media

Latest Academic Mexico Trip Report    “Mexico: On the Road to a Failed State?”    Mexico’s Instability Is a Real Problem

Mexico – Failed State/Failed Policies?   Among top U.S. fears: A failed Mexican state