By Col. Robert Killebrew, USA (Ret.)
Director, Best Defense office of Market Garden studies
as the war in Afghanistan continues to boil, the defense intellectual crowd has
wandered into an unnecessary and counterproductive debate about whether the
United States can avoid being involved in future counterinsurgency wars. "Unnecessary and counterproductive" is an appropriate
description of a largely contrived argument that distracts brainpower from
focusing on the real issue -- the changing nature of warfare in the emerging
Of course the U.S. is going to be involved in counterinsurgency in the future, just as we will be involved in all kinds of wars, period. Insurgency is one of the oldest forms of warfare -- an uprising against a government. But the terms under which rebellions are put down are changing fast. Until very recently, the Westphalian attitude of the times reinforced the authority of governments to suppress internal rebellions without too much regard to sensitivities or legal restraints; both the American revolution and Napoleon's war on the Iberian Peninsula, for example, featured insurgencies that were brutally suppressed by regular forces, but there was no thought of holding commanders -- much less governments -- responsible for brutal reprisals.
All that is changing as the world is changing. Nuremburg mattered a lot. The WWII Germans felt no need for a counterinsurgency doctrine -- their reaction to resistance in occupied countries was just to round up hostages and shoot them -- but after the war some commanders were held to account despite the argument that they were only obeying orders, a legal landmark. Punishing commanders for massacres was not only simple justice, but an indication that civilians were no longer just an incidental backdrop to a war. Rather individuals began to be regarded as having rights that continued even during warfare, and even when they rise against their rulers. That principle of the universality of human rights in war is a historic change that is now considered applicable even in modern struggles against the medieval brutalities of al Qaeda or the Taliban. In the 21st century, international law is struggling to replace the Westphalian compact as the new firebreak against indiscriminate barbarism.
This is the nub of the challenge of counterinsurgency (or COIN, as it is known by its unfortunate acronym). People may rise in rebellion against their government, or against the government of a conquering power, but the government's reaction can no longer be to slaughter them wholesale -- as is happening now in Syria -- for two reasons. First, sanctions to punish indiscriminate killing are spreading and increasingly effective, as the Syrian leadership will eventually learn. This is the emergence of the new sensibility of human rights, which will accompany widespread political changes in the new century (as we are seeing today in the Arab world). Second, and more practically, killing alone doesn't work against a determined opposition -- never has, in fact. Insurgency, which stems from political dissatisfaction, ultimately requires a political solution, so the greatest part of any successful COIN campaign requires political solutions that address the fundamental issue that started the insurgency in the first place, while security forces -- both military and, increasingly, police -- try to contain violence and drive it down to tolerable levels.
All this can frustrate soldiers when they get tasked to fight insurgents under restrictive rules of engagement and with little backing from the political class. An American military that in the 1990s trained for violent high-tech short wars has been understandably frustrated to find itself bogged down in an inconclusive, decades-long war that its political leadership has either misunderstood or backed away from. The "COIN is dead" school of military thought is a reaction to that frustration -- and to the damage that our protracted focus on counterinsurgency has done to other, essential military capabilities -- but it is wrongheaded for a number of reasons.
First, insurgencies aren't going away, and the United States will fight more of them. For a variety of reasons, populations and individuals today are more empowered than ever before, and governments are under more pressure to meet the expectations of their people. Political dissatisfaction, mass migration, widespread armaments, and crime are producing an international landscape that will challenge weak governments for decades, and often insurgencies will be supported by outside powers hostile to the United States or our friends. Aggression by insurgency is an old strategy that will recur.
Second, because they're hard doesn't mean we can't win them. In fact, insurgencies are more unsuccessful than otherwise. When states react to insurgencies wisely, insurgents are usually defeated. Colombia is in the process of defeating an insurgency that was threatening its survival a decade ago. The once-inevitable revolution in El Salvador is long over. The government of Iraq is consolidating power and looks to be on a success curve. In all cases, political reforms marched hand with increasing military and police capabilities and the collapse of the insurgency's outside sponsor. One significant point for military planners is the degree to which military power must be blended with the state's police and other civil powers, which until recently was contrary to U.S. military tradition and practice. Nothing changes tradition and practice, though, like hard lessons in the field.
Thirdly, American military (and political) planners and doctrine-writers must understand that the U.S. is not, and never will be, the primary COIN force -- our best course will always be to work "by, with, and through" the host country in the lead, with Americans playing a supporting role. This is a profound change for soldiers who are trained to take charge of dangerous situations. Even in Afghanistan and Iraq, where U.S. forces faced the worst-case COIN scenario possible -- the absence of a government to support -- ultimate success has not been, and will not be, possible until the local government shoulders the load. We were far too slow to understand this in these two theaters, and too slow to plan and resource local leaders once we did understand it.
Finally, wars are never fought the same way twice, though armies invariably prepare for the last one. The American military faces a daunting challenge -- to correctly draw lessons out of a decade of experience in two wars that will prepare them for the next one, without falling into the last-war trap that a decade of war has prepared for us. Additionally, the military services know they will be the ones on the ground compensating for weaknesses in the other branches of government. Getting this right in the manuals will be very tough, and may challenge deeply-held Service beliefs and organizational imperatives; a noted COIN authority is fond of reminding his friends "counterinsurgency is more intellectual than a bayonet charge." That is certainly true -- but no reason to walk away from it.