As Spencer has already reported, the past week has been filled with chatter from the think tank advisors returning from Gen. McChrystal’s Afghanistan review. Quite a lot of blog-o-sphere rage has focused on Andrew Exum’s remarks , noting striking differences in policy recommendations and observations he is articulating in this newest round of interviews and those he espoused before leaving. Josh Foust in particular has a nice side-by-side piece showing key changes in Ex’s recommendations (as well as some serious internal inconsistencies in his articulation of them). Jari over at The Stupidest Man on Earth also points out that these statements are very different in tone from those made by Tony Cordesman over the last few days. One possibility here is certainly that Ex has drunk the Kool-Aid. But as Josh points out in his post, spending time on the ground can create very real changes in attitude, so I thought it was worth doing some comparison work between Ex, Cordesman, and Biddle’s before and after statements, to see where the changes are, particularly given the boss-man’s reporting that those in the review was far from united in their perspectives.
While Cordesman has reams of publication devoted to Afghanistan, the most substantial analysis and policy recommendation paper from the last few months in my mind is Winning Afghanistan*. While the total report is nearly 200 pages long, key recommendations and observations include the integration of “the civil and military dimensions of the war into sustainable efforts that take account of the real world conditions in both [Afghanistan and Pakistan]” (pg vi); more, and more honest, governance from all levels of the Afghan government; more development aid; and “far more coherence in international effort to make this possible” (p vi). While speaking to the need for a radical expansion of both the ANA and ANP, the report is particularly concerned with the need to provide training to police units with both the specific paramilitary skills and the loyalty to the duties and responsibilities of their position and national government that they need to do their jobs. There is also a substantial discussion of the failure to define what the ‘hold’ and ‘build’ phases will look like, and how to prepare the Afghan Security Forces to take them over in a reasonable amount of time. Finally, he notes that there is a decisive need to change if we want to be on track for even a ‘slow win,’ and that the necessary resources and direction for that change must come from the US rather than relying on coalition partners.
So what did we hear at yesterday’s press conference ? (Note: There isn’t a transcript available yet, so I’ve transcribed a good-sized chunk here sorry for any errors):
The fact is, we have to go far beyond the normal limits of counterinsurgency, we’re involved in an exercise in armed nation building, and we’re doing it at a time when we have to see Afghanistan find ways to… create an effective government, create effective forces, and simultaneously meet challenges like al-Qaeda, the Taliban, and pressures from outside powers.
Above all, this is a war shaped not by strategy, but by systematic neglect and years of under-resourcing… Seven years after we entered the war what is most striking about Afghanistan is how many people are still acting like this was the first year in Afghanistan. How many of the exercises are disconnected and theoretical, or are involved with experiments... And you see these problems are much more critical on the civil side then they are on the military side...
… What should be an integrated civil-military effort, and a focus on winning the war in the field, is a dysfunctional wasteful mess, focused on Kabul and crippled by bureaucratic divisions. It is further crippled by Afghan corruption, power brokering, and by the individual national caveats and tensions within and between the individual members of ISAF and NATO.
…You need to refocus the intelligence effort to focus on the nature of the insurgency, not simply finding threat forces in the field and defeating them...
We, the United States, are going to have to provide the resources if we want to win. Most of the incremental resources will have to come from us. This means very substantial budget increases, it means more bridge combat troops, and it means financing both the civilian effort need in the field, and a near doubling of Afghan National Security Forces. Those forces not only have to be doubled to provide a minimum level of coverage, we have to face the fact that we do not need civil police in a country that has no courts in something like 95% of the villages… and where the police cannot survive unless they have paramilitary capabilities and outside support…
And finally, let me just make one last point. When we talk about winning, we are not talking about transforming Afghanistan into some mirror image of the West, or accelerating it to the point where it becomes a developed country within the foreseeable future. We’re talking about basic security, basic stability basic economic opportunity for the Afghans, and creating a country which will be free of international terrorism. One of the problems we all face in Afghanistan is that we have set impossible goals, according to impossible time frames, which Afghanistan cannot possibly meet. We need to serve the real needs of the people in achievable ways. If we pursue a dream, we will lose the war.
What’s striking here is that very little has changed other than Cordesman’s level of aggravation. The key flaws that he points to are the same, but no one seems to be following through. After seven years of experimentation, we are still forced to “experiment” in Helmand to figure out necessary troop levels and strategies for the ‘hold’ and ‘build’ phases.
One small change in position that showed up in the Q & A which I think is worth highlighting is Cordesman’s point that Pakistan is not the only country that shelters terrorists, and that we ignore growing situations in countries like Yemen and Somalia for the sake of presenting a conveniently unified description of Af-Pak. Given that Cordesman was one of the first to push for the inclusion of Pakistan as a necessary second side of the coin, I think this is a point that is worth paying some serious attention to as we keep talking about our CT and COIN goals in the conflict that he sees a need to turn to a more international CT agenda rather than one that looks only at Af-Pak.
So what is so different about Exum’s after action reports? Actually, in general I think he’s often saying very similar things to Cordesman, but because there is more of a disconnect between his recommendations in Triage and the post-review interviews, he is sounding less coherent. I think the changes in his conception of what a metric of population stability should be have, in fact, changed, most likely because “the population may not be targeted kinetically in the way that it was in Iraq, but it’s certainly being targeted.” This is why we do fieldwork, kids, so we know when it’s appropriate to draw analogies to previous conflicts and when it’s not.
On the question of what the future ‘hold’ and ‘build’ stages should look like, I think again what we’re seeing is that Ex has not really changed his opinion, so much as he can’t reconcile facts on the ground to the way he thinks things should run. The plan as laid out in Triage called for an ink spot approach, which is what seems to be working in areas where we’ve had some success (see this great article from the Army Times about life on one of those remote bases), but now that we have a major kinetic operation underway in Helmand, the situation on the ground is going to require some other approach. I think that this illogical sting of assertions:
We’ve got very limited international forces in Afghanistan, and we’re actually not using them to their best effect if we’ve got them ‘holding.’ So if the Marines in Helmand are holding terrain right now, that’s a waste of resources. The ‘hold’ function should be executed by a robust Afghan national security force.
is actually the result of Ex now agreeing with Cordesman about the necessity of a massive surge of Afghan forces to a greater degree then Triage articulated, but having to deal with what is looking like a premature major operation. Frankly, I think neither man has much hope we’ll hold the ground we’re taking now, although neither says it. The only reason Cordesman doesn’t sound as discombobulated is because he is speaking about these issues from a much broader perspective than Ex, which allows him to write Helmand off as another ‘experiment’ needing ‘improvisations,’ pointing out that the operation was planned before the new team was in place. However, during the Q&A he too argues for a focus on ANA involvement in ‘hold’ ops in later operations.
Another point the men seem to now agree on that was not really discussed in Triage is the need to change how we conceive of what relevant intelligence is. Ex now claims that:
Our intelligence and the way that we gather intelligence continues to be focused on the enemy. What we need to know to be successful in Afghanistan is not just the size, disposition and composition of the Quetta Shura Taliban, or the Haqqani network, but we need to understand local dynamics.
Again I think this represents a growing realization of just how different Iraq and Afghanistan are, and how that has twisted strategy recommendations. This is a very old hobby horse of Cordesman, particularly to the extent it involves poor government reporting and assessment, so I’m not surprised he got there first.
Prior to the review, Biddle had been perhaps the most negative of the three on the future of the conflict, and his piece in The American Interest drew plenty of critiques over the last month. Asked specifically if he had revisions to make to his comments given what he had seen, he stated:
My sense of the situation is stronger now than it was certainly before leaving. My basic view remains, however, that the case for making a go at this is stronger than that for cutting our losses and withdrawing. But the argument I made in the American Interest article was that it was a fairly close call, that this wasn't a slam dunk either way… And I certainly continue to think that either course of action--staying or withdrawing--has important problems. On balance staying is the better course, but only if we're prepared to resource it correctly. The weakest argument is staying and under-resourcing it. That creates the opportunity to lose slowly, which is the worst of the three possible approaches.
Basically, I think he has changed the least, and that both Exum and Cordesman have come to agree with Biddle. His frank assessment that the necessary triage approach is going to include losing territory in order to hold what we have really isn’t all that different from what Ex’s triage report called for, but it is willing to articulate costs in much less idealized terms.
And that generally seems to be the takeaway. We have the right plan, but there is going to be a substantial (and possibly unbearable) cost to implement it, and facts on the ground are going to mean we lose some of our current half complete missions before we can start winning.
*Full discloser: my boyfriend was one of the coauthors of the report. However all analysis here is my own. [ed apologies for neglecting to have the disclosure on the original post]
Crossposted to http://attackerman.firedoglake.com/2009/07/31/theres-something-happening-here-but-what-it-is-aint-exactly-clear/