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S E N I O R F E L L O W I N N A T I O NAL S E C URI T Y ST U D I E S ,
THE COUNCIL ON FOREIGN RELATIONS
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BEFORE THE HOUSE ARMED SERVICES SUBCOMMITTEE
ON TERRORISM, UNCONVENTIONAL THREATS, AND CAPABILITIES
J U N E 2 9, 2 0 06
C h a i r m a n S a x t o n, Co n g re s s ma n M ee h an , m e m ber s o f t he
S u b c o m m i t t ee : T h ank y o u fo r i n v i ti n g m e h e re t o day t o d i s c us s th e f u tu r e o f t h e U . S. S pe c i al O p e r at i o ns C o m m a nd ( S O C OM) a n d the w a r on te r r or , a l on g w i th t w o m e n fo r w ho m I h a v e g r eat ad m i r at i o n — W a y ne D o w ni ng a n d M i k e V i c k er s . I w i l l b e gi n b y s ug ge s t i ng w ha t k i n d o f f orc e we n e ed t o d e fe a t o u r Is l a mis t e ne m i es , t he n r ev i e w th e de f i c i e nc i es of o u r c u r r en t f o rc e st ruc t ure, an d f in al l y c on cl u de wi th a su g ges ti o n fo r ho w a maj or o r g an i z at i o n al o v e r ha u l —t he re s ur r ec ti on of th e O f f i c e of S tr a t eg i c
S e r v i c es - -c o ul d ad d re s s s o m e o f t h es e s h o r tc o mi ng s .
M y s t a rt i ng po i n t i s t h e as s u m p t i o n t ha t i n t he y e ar s a h ea d k e y c o m p et enc i e s fo r t he U . S. arm e d fo rc es wi l l b e k n o w l e d ge o f f o re i g n l a ng u ag es a nd c ul t ur e s , s k i l l at c o un t er i n s ur g enc y w a r fa r e, a n d t he a b i l i t y to w o r k w i t h a w i d e r ang e o f f o re i g n a l l i e s , r a n gi ng f ro m a d v anc e d
N A T O m i l i t a ri es an d c on s t ab ul a r i e s t o pri m i ti v e mi li ti as i n p lac es l ik e
A f g ha ni s ta n a n d S om a l i a . All o f t h es e ne e ds a r e d i c t at ed by t h e n at ur e of t h e gl o ba l w a r b ei ng w a g ed o n t he U . S. a n d o ur all i e s b y Al Q a e d a a nd v a r i ou s oth e r Is l a mis t t er r o ris t g r ou ps . O u r en e m i es i n t hi s s tr u g gl e c a nn ot be d e fe a te d w i t h c o n ve n ti on a l mi l i ta r y fo rce . I n de e d, t he r e i s a d i s ti nc t d an g e r th a t i n d i s c ri m i na t e a ppl i c a t i o n o f v i o l en c e wi l l on l y c re at e mo re en emi e s in the fu t ure . To de f ea t th is Isl a mis t i nsu rgen c y we mu s t b e a bl e n ot on l y t o t ra c k do w n a n d c a p tur e or k i l l ha r d -c or e te r r or i s ts bu t a l s o t o c ar r y o ut c i vi l a ff ai rs an d i nf o r ma t i o n o pe ra t i o ns t o w i n t h e “he a r ts a n d m i nd s ” o f th e g re a t m a s s o f u nc o mmi t t ed M us l i m s . We a r e v er y go o d a t e l i m i na ti n g to p t e rr o ri s t s , onc e t he y h av e b ee n f ou n d ( w i t nes s A bu
M u s a b al -Z a r qa w i ’ s d e at h ); l es s g oo d a t f i n di ng the m ( O s a ma bi n L ad en a n d A y m a n al - Za w ah i ri a r e s t i l l a t l a r ge ); an d l es s s k i l l e d s ti l l at c ha n gi n g t h e c o n di ti o n s th a t br e e d te r ror i s m i n the fi rs t pl ac e ( l o ok at th e c o nt in ui ng vi ol e nc e in I ra q a nd Af gh a nis ta n ) .
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M a x B o o t i s t h e a u t h o r o f T h e S a v a g e W a r s o f P e a c e : S m a l l W a r s a n d t h e
R i s e o f A m e r i c a n P o w e r ( B a s i c B o o k s , 2 0 0 2 ) a n d t h e f o r t h c o m i n g W a r M a d e
N e w : T e c h n o l o g y , W a r f a r e , a n d t h e C o u r s e o f H i s t o r y , 1 5 0 0 t o T o d a y ( G o t h a m
B o o k s , O c t o b e r 2 0 0 6 ) , a s w e l l a s t h e F o r e i g n A f f a i r s a r t i c l e ( M a r c h / A p r i l 2 0 0 5 ) ,
“ T h e S t r u g g l e t o T r a n s f o r m t h e M i l i t a r y . ” F u l l b i o g r a p h y a t t a c h e d .
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F o c us o n C o u n te r i ns u r g en c y
W e ar e p ay i n g t he pr i c e f o r th i s s k i l l s -d ef i c i t i n p l ac es l i k e I ra q w h e r e i t ha s b ee n d i f f i c ul t fo r a co n v en tio n al l y f oc u s ed Ar m y a n d M a r i n e
C o r ps — t o s a y n ot hi n g o f t h e N a v y a n d A i r F o rc e-- t o p i v ot to c o un te r i nsu r g en c y op e r at i o ns . T he r e i s w i d es pr e ad c o nc er n , i nc l u di ng w i t hi n t he a r m e d f o rc es , t ha t a p re di l e c t i on f o r “k i n e ti c ” s ol ut i on s ha s m a d e t h e s i t u at i o n i n pa r ts o f I r a q w o rs e, no t b et t er . In t hi s re g a rd , I wa s s t uck b y an op - ed pu b l i s h ed re c en tl y i n t h e B al ti m o r e Su n ( “M i l i t a r y M u s t
S h a r e th e B l a m e ,” J u n e 2 0, 20 0 6 ) b y a M a r i ne of fi c e r n a m ed E ri k S wa b b w h o s e r v ed i n F a l l uj a h i n 2 00 4- 2 0 05 . H e w r i te s t ha t p ri o r to de p l o y m e n t,
“ W e d i d no t u n de rs ta n d c e r ta i n d y na m i c s at p l a y , s uc h as the no ti o n th a t e x c es s i v e f o rc e p ro te c ti on a l i en a te s t he p o pu l ace , r e d uc es i nt e l l i g en c e a n d, th e ref o r e, m ak e s o ne l es s s ec u re . W e k ne w h o w to r ai d a h ou s e b u t n o t h o w t o b ui l d l oc al re l a ti o ns h i ps a nd l e a r n w he re i n s u r ge nt s we r e h i di ng . We di d n ot k n o w th ese c r uc i a l as p ec ts o f c o un te r i nsu r g en c y b e c a us e w e h ad n ev e r r ec ei ve d t r ai ni ng ab o ut the m . ”
K e e p i n mi n d th a t Swa b b we nt to Ir a q m o r e t ha n ye a r i nt o t he g u e rr i l l a wa r , a nd tha t h e s er v e d i n t he M a r i ne C or p s , w hi c h h as t r a di ti on all y pl ac e d mo re e mph a sis on “s ma ll wa r” sk ill s t han ha ve th e o t he r s er v i c e s . An d y e t , b y hi s o w n t es ti m o n y , he d i d no t u nd e rs t an d th e mo s t b as ic te ne ts of co un t erin s urg enc y wa rfa r e —e s pe ci all y t he f u nd a m e nta l p a ra do x t ha t t oo m u c h a gg re s s i o n c an be c o un te r p ro d uc t i v e , a n d t ha t a “ s o ft e r ” ap p r oa c h c a n a c t u al l y p r o duc e b e tt e r r es u l ts .
T he ar m ed s e r v i c es, i n p a rt i c u l ar th e Ar m y a n d M a r i n e Co r ps , a re n o w do i n g a b e tt e r j o b o f t r ai ni n g fo r s uc h mi s s i on s -- b ut n ot go o d e n ou g h. Th a t i s wh y G e n er al G e o r ge Ca s e y J r. fe l t c o m p ell e d to s e t u p h i s o wn c o u nt e ri ns ur g e nc y s c h o ol i n I raq fo r n e wl y a r ri v i ng o f fi c e rs , a j ob t h at s h ou l d ha v e bee n d o ne be f o re t h e y s hi pp ed of f t o wa r . C l e ar l y t he r e i s a n ee d f o r m or e tr a i n i n g f oc us e d on thi s c ri ti c a l s ub j e c t , as th er e i s f o r m o r e l a ngu a ge tr ai ni n g. An y t hi n g th i s Co m m i t t ee c o ul d do to fu r th e r pr o d t h e a r m ed f o rce s i n t h i s d i r ec ti o n w o ul d b e e x t r e me l y us ef ul . T he
Q u a d re n ni a l De f ense R e v i e w m a d e t h e r i gh t n oi s e s a bo u t th e n e ed to f o c u s on s t a bi l i t y o pe r a ti on s , l a n gu a ge tr a i n i n g , an d re l a te d a r ea s , b ut t h e d ef e nse bu d ge t re m a i ns o v e r w h el m i ng l y foc us ed on c o n ve n ti on a l p r o gr a m s . M u c h m o re ne e ds t o b e d on e to tu r n t he r h e to ri c ab o ut i r re g ul ar w a r f ar e i nt o re al it y .
N o o ne s ug g es ts t h at w e g o t oo fa r i n t he op p os i t e d i r ec ti o n a n d f o c u s ou r m i l i t a r y e xc l u s i v el y o n w ag in g “ s m al l w ar s .” Th e re i s s ti l l a n e ed to be ab l e to fi g ht l a rg e, c on v e nt i on a l c o nf l i c t s a ga i n s t p o te n ti al a d v e rs a ri es l i k e C hi n a a n d N or t h K o re a , i f on l y t o p r e v e nt t he m f r o m h a pp e ni ng i n th e f i r s t pl ac e. An d w hi l e th e re gu l a r a r m e d fo rc es m us t g a i n g r ea te r c o m p ete n c e i n c ou n te r i n s u rg e nc y an d r el a te d dis c i pl i n es , t h e y s ho uld no t b ec ome t he mai n f oc us o f mo s t s ol di e rs , sa il or s , ai r me n, o r ma ri nes .
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T h e b ul k of th i s t as k s ho ul d f al l to s pe c i al i s ts — th e m e n an d w o m e n w h o wi l l be on th e f ro n t l i ne s of th e wa r o n t e rr o r fo r de c a des to c o m e.
T h e y m us t b e e x p er ts i n s u c h fi el ds as e th n og r ap h y, l i ng ui s t i c s , g e og r ap h y, hi s t or y , e c on o m i c s , p ol i t ic s , p ol i c i n g, p u bl i c r el at i on s , p u bl i c a d m i ni s t rat i on , di pl oma c y , l o w- i nt e nsi t y c o nf l i c t, an d h u m a n i n te l l i g en c e c ol l e c t i o n a n d a na l ys i s — pr e fer a bl y a t the s a m e t i m e . M e r el y t o s ta t e t h e l i s t i s t o m a k e ob v i ou s o u r s h or t c o m i ng s i n a l l o f t he s e a re as . W e d o n ot h a v e n e ar l y e n ou g h G e r t r ud e B e l l s , T. E . L a w re nc es , Ch a rl es “ C hi n es e”
G o r d on s , o r Ri c h a rd F r an c i s Bu r t on s , t o n a m e o nl y a f e w o f th e a r ea e x p e r ts f ro m t he heyd a y o f t he B ri ti s h Emp i r e w h o i m m e rs e d t he m s el v e s i n f o re ig n c ul t ures i n o r de r t o ad va n ce Wh i te ha ll ’s in t e re sts ac ross th e g l ob e.
E x p e r ts Ne e d ed
S u c h l e arn e d m e n an d w o m en c an b e i nv a l u ab l e “f o rc e m u l ti pl i e rs . ”
C o n s i de r th e c as e o f C o l o n el Ro b e rt W a rb u r to n, w ho s p ok e flu e nt P er s i a n a n d P as h to an d s pen t 1 8 y ea rs (1 8 79 -18 9 7 ) as t he po l i ti c a l o f fi c e r i n th e
N o r t h we s t F r on ti e r pr o v i nc e of w h a t i s t od a y P ak i s ta n . H e k ep t t hi s v o l a til e r eg i on (n o w a Ta l i b an a n d al Q ae d a s t r ong h ol d ) qu i e t t h ro u gh h i s p e rs o na l i n f l u en c e . “ I n a n a rea w h er e eve r y m a l e w a s h ab i tu a l l y ar m ed at a l l ti m es , ” h i s to ri a n B y r o n F a rw e l l w ro t e i n Q u ee n V i c t o ri a ’s L i tt l e Wa rs ,
“ h e we nt ab o ut w i t h o n l y a wa l k i n g s t i c k .” Wi t hi n a m o n t h o f h i s re ti re men t, th e a r ea wa s s wep t b y an Isl ami c f u nd ame n t al is t re vo lt t h at t o ok t h ou s a n ds o f Bri ti s h s ol di e r s to pu t d o w n . I d ar e s a y w e w o u l d ha ve m o r e l uc k p a c i f yi n g th e N or th w e s t F ro nt i e r — n o w a k e y t as k fo r ou r f or c e s i n Af gh a ni s t an — i f we ha d m ore W ar b ur to n s of ou r o w n .
U n f o rt un a te l y th e p er s on n el s ys t e m e m p l o y e d n o t on l y b y t he a r m e d f o rc es bu t als o b y S ta te D e pa rt m e n t, C I A, a n d o th e r g o v e r n m en t a g en c i es m a k es i t pr a c t i c al l y i m p o ss i b l e t o d e v el op s u c h e x p e r tis e .
D i pl o m a ts , s o l d i e rs , a nd s pi es a l i k e a r e s h uf fl ed fro m p os t t o p os t w i t h d i z z yi n g ra p i d i t y . Th e a v e rage a r m y o f fi c e r s pe nds an a v e r ag e o f o nl y 1 8 m o n t hs a t e a c h a s s i g n m e nt o ve r th e c o ur s e of a 25 - y e a r c a re e r . Th e a r m y r o ta te s u ni ts ou t o f Af gha n i s ta n a nd I ra q e v er y y e a r , the M a ri n es e v e r y s i x to s e v e n m o n th s . The S ta t e De p a rt m e nt a nd th e CI A m o v e th e i r e m p l o y ees j us t as of t en , i f no t m o r e s o . S o j u s t whe n o u r p eo p l e o n t he s p ot s ta r t t o f i g u re ou t w ha t’ s g o i n g o n i n th es e c om p l e x c ul tu r es , t ha t’ s w h e n i t’ s ti m e fo r t he m t o g o h o m e a n d f o r n o v i c es to r e pl ac e t he m .
T h e l og i c b e hi n d th i s s y s te m i s th at s ol di e rs a n d ot h e r go v e rn m e n t e m p l o y ees ar e s u p po s ed t o b e n ea r l y i nte r c h a ng eab l e c o gs i n a gi a nt m a c hi n e —a ta nk dr i v e r o ug ht t o b e a bl e t o d ri v e an M - 1 wh et h e r i n
A l a ba m a o r A nb ar . B u t c ul tu ra l k no w l ed g e c a n not be s o e as i l y ta u gh t o r t r a ns f e r red . I n t ri b al s oc i et i es , i nf l u en c e i s e nt i r el y p e rs on al ; t he r e l a ti o ns hi p s c ul t i v ate d b y o ne s ol di e r, s py , o r di p l oma t c a nn ot ea s i l y b e p a s s ed a l o n g t o a s u c c es s o r .
O u r pe rs on n el s y s t em f u r th er p l ac es a pr e m i u m o n m o v i n g off i c e rs f r o m s l o t to s l ot — fr om l i n e c om m a n d s to s t af f j obs an d s c ho o l s , fr o m
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c o m b at t o g a r ris o n du t y — i n o rd e r t o d e ve l op a c o rp s o f g en er a l i s ts fr om w h i c h e v en t ua l l y th e s en i o r l ea d e rs o f th e s e r vi c es wi l l b e s e l ec te d.
T h e re i s a l ot t o b e s ai d f o r thi s s ys t e m , b ut th e re m u s t a l s o b e a w a y fo r s o m e e x pe r ts t o o p t o ut of t h e e nd l e ss ro t at i o ns —t o s ta y f or y e a rs , e ve n d e c a de s , i n on e j ob o r on e pl ac e a nd th er e b y ga i n t h e k i nd of s p eci a l i z e d e x p e r tis e t h at w e s o d es pe r ate l y ne ed i n th e wa r o n t e rr o ri s m .
S O C O M ’ s S h o r tc om i n gs
I n t h eo r y , t h e pl ac e w h e r e m uc h o f t he e x p e r tis e w h i c h I h av e p r e v i o us l y d es c r i b ed o ug h t t o re s i d e, a t l e a s t a s f ar as t h e a rm e d fo rc es g o , i s t h e U . S . Sp eci al O p er at i o n s C o m m a n d. S O COM h a s be e n d e s i gn at ed th e l ea d c o m ba t c o m p o ne n t i n t he w ar o n t er r or f o r t hi s v er y r e as o n. I n p r act i c e, h o w e v e r, S O C O M f a l l s f ar s ho r t o f w h at w e n ee d . I t i s o v e rl y fo c us ed o n w h a t i s k n o wn i n the t ra de as D i re c t Act i on — on r a p pe l l i n g o ut of h e l i c o p te rs , k i c k i n g d o wn do o rs , an d c ap t ur i n g o r k i l l i n g b a d g u ys . T h i s s tr ate g y c a n oc c a s i on al l y p a y of f , a s wi th t he c a pt u re o f
S a d da m Hu s s ei n a nd th e k i l l i ng of A bu M u s a b al -Z a r qa w i , bu t t h e a f te r m a th o f t h es e c e l eb r at ed a c c o m pl i s h m e n ts s ho w s t he l i m i t a ti on s o f t h e “ m a nhu n te r ” m o d e l of c o un t e ri ns ur ge n c y . In bo t h c a s e s , t he i m m o b i l i z a t i o n o f m a j or en e my l e ad e rs p r o v e d to b e o nl y t em p o r a r y s e tb ack s fo r a l a r ge -s c a l e , d ec e n t ra l i z e d t e rr o ri s t m o v e m e n t. M a k i ng re a l p r o gr es s , w h e t he r i n I r aq o r o th e r l oc al es , wil l r equ i re acc om p l i s hi ng m u c h m ore di ff i c ul t, l es s g l a mo r o us t as k s s uc h as e s ta bl i s hin g s ec ur i ty, f u r th er i ng e c on o m i c a n d p ol i t i c a l d e v el opme n t , a nd s pr e ad i n g t he ri gh t i n fo r m a ti on to wi n ove r th e p op u l a c e .
A b o v e a l l , i t w i l l re qu i re w or k i n g wi t h i nd i ge n ous a l l i e s w h o m u s t n e c e s s a r i l y c a rr y the bu l k o f th e b u rd e n i n th i s t y p e o f c on fl i c t. N at i ve recruits have been k e y to Americ a’s mos t succ essful c o un te r i nsu r g en c i es , w h e th er th e Ap ac he s c ou ts w h o he l p ed t rac k d ow n t h e r en e ga d e c h i e f G e r o ni m o i n 1 88 6 o r t he M ac ab e be Sc ou t s w ho h e l p e d c ap t u re Ph i l i p p i n e r ebe l l ea d er E m i l i o Agu i na l d o i n 1 9 01 . Re l i a n c e o n t h es e na t i v e he l pe r s i s n ec e s s a r y b ec a us e fe w i f an y o uts i d e rs c an b e e x p e c t ed to m a tc h gu e r ril l a s ’ k n o wl ed ge of l oc al t o po g ra p hy a n d s o c i e t y .
N o r i s it l ik el y th a t th e U .S . wil l e v e r b e a b l e t o s en d e n ou g h s ol di er s o v e r s e as to w i n a m a j or i ns u rg e nc y on th e i r o wn ; o u r r es ou rc es ar e s u ff i c i e nt l y l i mi t ed th a t i t wi l l a l w a ys be n ec es s a ry t o r el y i n g re at par t on l oc al l y r ec r u i t e d s o l d i er s a nd c o ns ta bl es w he n w ag i ng a n i ns u rg e nc y o r c o un te r i nsu r g en c y.
I n t h e mod e r n Spe ci al Op erat io n s le xic on , s uc h t as ks f al l und e r t he r u b ri c of “u n c o n v en ti o na l w a rfa r e ” (i . e. , h e l p i n g i nd i ge n ous all i es to carr y o u t g ue r ri l l a o pe r at i o n s , p s y -op s , i n te l l i ge n c e - ga the r i n g , an d r el a te d a c ti v i t i e s ) a n d “ fo r eig n i nt e rn al de fe ns e ” ( h el pi ng fr i en dl y g ov e r n m e n ts d e fe a t g ue r ri l l as a nd ba n di ts ), an d t h e y a r e t wo of th e p ri m a r y m i s s i on s o f t h e A r my S p ec i a l F o rc es , po p ul a rl y k n o w n as th e G re e n B e r e ts, wh o a r e s up pos e d to w ork c l o s e l y w i t h ps y c ho l og i c al op e r at i o ns a n d c i v i l a f fa i rs s pe c i al i s ts . B u t t h er e i s wi d es pre a d c o nc er n wi t hi n A r m y S F
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c i r c l es t h at th ei r “ s o ft e r ”, b u t no l e s s v i tal , mi s s i o ns ar e b ei ng s h or tc ha ng e d b y S OC O M i n fav o r of s e x i e r S W AT -s t y l e ra i d s .
O n e re c e nt l y re ti r ed S F c o l o nel w ro t e to m e a f e w w e e k s a go : “T he c u rr e nt p ro b l e m w i th S O C O M i s th at i t i s un ba l a nc e d. M o s t o f t he l e ad e rs hi p a nd pl an ni n g st af f ha ve co me f r o m th e DA [ Direc t Ac ti o n] s i d e . Th e y h a v e n o un d e rs ta nd i n g o f UW [ U n c o n v en t i o na l Wa r f ar e] . To t h e d eg r ee th a t th ey a r e s t a rti n g to de v e l op a n a pp r ec i a ti o n f o r i t , i t i s o n l y a s an e na bl e r fo r D A o per a ti o ns . In o th e r w o rd s , th e y wa n t t o c h er r y p i c k te c h ni q ue s de v e l op e d to w a g e u nc o n v e nt i o na l wa r a nd u s e t h e m t o s u pp o rt c on v e n ti on al c o m m a ndo op e ra ti on s .”
A n o th e r m o r e s en i o r, r et i r ed SF of fi c e r ema i l e d t o c o m pl ai n o f t h e
“ t o ta l U S SOC O M p r e o c c u pa ti on w i t h r ai di n g- - S O F o r i e n ta ti on on S pe c i al
O p e r at i o ns an d a bs o l ut el y non e o n L o w I nt e nsi t y C o n fl i c t. O S D - S O L IC
[ O f fi c e of t h e S ec r eta r y of D efe n s e , S p ec i a l O p e rat i on s / Lo w I n te ns i t y
C o n fl i c t] on l y ha s fu l f i l l e d 1 /2 o f i ts c ha rt e r . Lo w In t en s i t y Co n fl i c t di ed a r o un d 1 99 0 - 91 . ”
S i m i l a r c on c er ns h av e b ee n a i r e d i n p ri nt — f o r i ns ta n c e i n Se a n
N a y l o r’ s Ar m e d Fo rce s J ou rn al a r tic l e , “Mo r e Th an D o or Ki c k e rs ” ( M a rc h
2 0 06 ) , w hi c h q uo t ed y e t an o th er r et i r e d SF of fi c e r (L i eu te n an t C o l o n el
M a r k Ha s e l to n ), c om p l ai ni n g, “ M y c on c e r n i s t h at a l l we ’ r e f o c u s e d on i s d i re c t act i o n , t o th e a b s o l u te exc l usi o n of al l ot h er t h i n gs … . If w e t he s p en d t he re st o f o u r li ve s ‘c apt u ri n g an d ki ll in g’ t erro ris ts a th e e xp e nse o f t h os e SF m i s s i ons th at ar e m o r e i m p or t a nt — ga i n i ng a c c es s to th e l o c al p o pu l at i o n, t ra i n i n g i n d i g e no us f o rce s, pro v i di n g e xp e r tis e a nd e x pa n di n g c a pa c i t y —we ’ re do ome d to fa i l u re . ”
W h e n I h ea r s uc h c om p l ai n ts c o m i n g f rom s o m any “ s na k e ea t e rs ” f o r wh o m I h a v e s u c h hi gh re s p e c t , I t ak e th e m s er i ou s l y , a nd I t hi nk th e m e m b e r s o f t hi s C om m i t t e e s h o ul d t oo . S O C O M h a s c r ea t ed th e b es t c o m m a n do fo rc es i n th e wo rld , b u t i t wi l l t ak e m or e th an c om m a n d o s t o w i n t h e wa r on t e rro r .
A n U n co nv e n ti o na l W a r f a re Co m m an d ?
T h e q ue s t i o n i s , wh at to do a bo u t t hi s ? Is i t p os s i bl e t o g et SOC O M t o re fo c u s m o r e o n U n c on v e nt i on al Wa rf a r e an d l e s s on Di re c t Ac ti o n?
P r o b ab l y n o t. Al r ead y S O C O M h a s tr an s fe r re d m o s t o f i t s p s y -o ps an d civi l affairs capabilities —areas of scant interest to m ost Navy S EALS,
A r m y R a ng e rs , o r De l ta F o rc e o pe r at i v es — t o th e re g ul a r a rm y . A n d , a s
N a y l o r n ote d , o f th e e i gh t t op fl a g of fi c e rs at S O COM ’ s he ad q ua r te rs a t
M a c D i l l A i r F or c e Bas e i n Fl o ri d a , n ot one s p en t h i s c a re e r i n S pe c i al
F o rc es . (Ge n e ra l Br y a n “ Do ug ” B ro w n , t h e S O C O M c o m m an d e r, o nc e s e r v ed o n a n A -T eam a s a n en l i s t e d m an m a n y d ec a de s ag o, bu t h i s s p eci al t y a s a n o ff i c e r ha s bee n s pe c i al o pe r at i o ns a vi at i on .) T he i ns ti t ut io na l c ul tu r e o f S O C OM i s s o f i rml y f i x ed in fa v o r o f “ k i c k i n g do w n d o o rs ” —an d s o m u c h of i ts fun d i n g i s d i r e c t e d fo r s uc h p ur po s es —t h at i t i s d ou bt f ul t ha t a n y a m o u nt of o ut s i de pr e s s ur e , eve n fr o m th i s
5

C o m m i t t ee , wi l l c han g e t he do m i n an t m i n ds et v ery m u c h, es p ec i al l y w h e n t h e Of fi ce o f t h e Secre t ary of De f e nse re ma i ns s o f i xat ed on su ch miss ions .
F o r t hi s rea s on t h ere i s g r o wi n g i nt e re s t w i t hi n t he U . S. A rm y S F c o m m u ni ty i n c re at i n g a ne w J oi n t U nc o n v e nt i o na l W a rf a re C o m m a nd w i t hi n S O C O M — a U W e qu i v al e n t t o th e J oi n t S pe c i al O p er at i o n s
Co mma n d wh ic h enc o mp ass es un its l ike Del t a Forc e (a. k. a. 1 st Sp ec ia l
F o rc es O pe r a ti on al D e t ac h m en t - D el ta ) a n d S e al T e a m Si x ( a .k .a . Nav a l
S p e c i al Wa r f ar e D e v e l op m e nt G r o u p, or D e v G r u ) , a n d f oc us e s o n D i rec t
A c ti o n m i s s i o ns . A n U n c on v e nt i on al Wa rf a r e C o mma n d c ou l d b ri ng t o ge t he r Ar m y S p e c i a l F o rc es , c i v i l - af f ai r s , an d p s y - o p s b y es s e n ti al l y e x p a nd i n g t he ro l e of th e Ar m y S p ec i a l Op e r at i o ns C o m m a n d a t F or t
B r a g g, Nor t h Ca r ol i n a . A c c ord i ng t o a p a pe r c o mmi s s i o n ed b y th e Arm y
S p e c i al Op e r at i o ns C o m m a n d F ut u re s Ce n te r , t hi s n e w c o m m a n d “c oul d f i gh t t he G W O T [ G l o b al Wa r o n T e r ro r] b y or g an i z i n g , tr a i ni n g, e q ui pp i ng a n d/ o r l e ad i ng i n di ge n ou s as s e t s to c o nd u c t s ub v e r s i on , s ab o ta g e a nd i n te l l i g en c e ac ti v i t i es di re c t ed a ga i n s t gr o u ps p rac ti c i ng t e rr o ri s m o r a g ai ns t n at i on -s t at es s u pp or tin g t e rr o ri s m d i re c t e d a ga i n s t U. S . i nt e re s t s t h r ou gh o ut th e wo rld . ”
T h i s s tr i k es m e as a g o od i d ea , b ut I w o uld al s o u r ge th e
C o m m i t t ee to c o nsi d e r g oi ng f u r th er and r e m o vi ng th e Un c o n v e nt i o na l
W a r fa r e m i s s i o n f rom S O C O M a l t og e th er . I w ou l d l i k e t o c o nc l u d e m y t e s t i m on y w i t h a b ol d i d ea fo r h o w th i s c o u l d b e a c c o m pl i s hed : b y r e s u r re c t i n g t h e O f fi c e of St r at e gi c S er v i c e s th a t w a s c re a te d i n 1 94 2 t o g a th e r a nd an al y z e i n te l l i g en c e as we l l a s t o c o n du c t l o w -i n te n s i t y wa rf are be h in d e nemy l i ne s in oc cu pi ed Eu ro pe a n d Asi a.
O S S R e d u x
O S S w a s d i s b an de d a ft e r W orl d W a r II ; b o th th e Gr e e n B er e ts an d t h e C I A t ra c e th ei r l i n ea g e to t h i s a ug us t an c e s t o r. M y p ro po s al i s t o r e c r ea t e OSS b y brin gi n g to g et he r un de r on e ro of not on l y Army SF , ci vi la f fa i rs, and ps y-op s b u t al so th e CIA’s pa ra mil it ary Sp ec ia l Ac ti vi ti es
D i v i s i on , w h i c h h as a l wa y s be e n a b i t o f a bu r eau c ra ti c o rp h an at La n gl e y
( a n d w hi c h i s s t a ff ed l a r ge l y b y S p eci al O p e ra ti o ns v et e ra ns) . Th i s c ou l d b e a j oi n t c i vi l - mi l i tar y a g enc y u n de r t h e c o m bi n ed o v e r s i gh t o f t h e
S e c re ta r y o f D ef en s e an d t h e D i r ec to r of N at i o n al I n te l l i g e nc e , l i k e th e
D e f e nse In t el l i ge nc e A ge nc y o r th e N a ti o na l S ec ur i t y Ag en c y . I t w o ul d b r i n g t og et h e r i n o ne pl ac e al l o f t he k ey s k i l l s e ts ne ed e d to w a ge t he s o ft er s ide of th e wa r on t e rro r. L ik e SOCOM, i t wo u ld ha ve ac ces s to m i l i t a r y p er s on n el a nd as s e ts ; b u t l i k e t he C I A’ s Sp e c i al Act i v i t i e s
D i v i s i on , i t s o pe r at i o n s w ou l d c on ta in a h i g he r d eg r e e of “co v e r t nes s ,” f l e xi bi l i t y , a n d “ de ni a b i l i t y ” t ha n t h os e c a r ri e d o ut b y t he un i f o r m e d m i l i t a r y.
O n e of th e k e y a d v an t ag es of O S S I I i s th a t i t w ou l d be ab l e t o e m p l o y i nd i ge n ous p e rs o nn el o n a m uc h l ar g er s c a l e th a n i s p r act i c ab l e t o da y . The r e i s c u rre n tl y a l e ga l p r oh i b i ti o n on re c r u i t i n g i nto th e U. S .
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a r m e d f o rc es an y o ne w h o i s no t a n A m er i c a n c i tiz e n o r p e rm a n e nt r e s i de n t (Gr e e n C a rd ho l d e r ). T h e C I A al s o l o oks a s k a nce up o n n on -
A m e r i c a n o f fi c e rs (as op po s e d t o a ge n ts ) . Th es e ar e c o nsi der e d “ s e c u ri t y r i s k s .” B ut t he gr e ate r ris k i s th a t w e wi l l l os e t he w a r on t e rr o r b ec aus e w e d on ’ t ha v e en o ugh un d er s ta n di n g of t h e s o c i et i e s i n w hi c h te r ro r i s ts o p e ra te . Su c h k n o wl e d ge c a n b e a c q ui r ed i n o n e of t wo w a ys: ei th e r b y l o ng - te r m i m m e r s i on i n fo r ei gn s oc i et i es o r b y s i m pl y r ec ru i t i n g f r o m t he s oc i e ti es i n w hi c h we fi gh t . O S S I I c o uld fa c i l i ta te bo t h a pp r o ac hes , i n t he f i rs t pl ac e b y j u nk i ng th e mi l i ta r y ’ s o v er l y r e s t ri c t i v e p e rs o nn e l r ot at i on p o l i c i e s , an d i n t he s ec o nd p l a c e b y j unk i n g i ts o ve r l y r es t ric ti v e c i t i z en s h i p r eq ui r eme n t s .
T h e G r e en B e re ts re c ru i t e d no n -c i t i z ens i n t he 19 5 0s wh en th e
L o dg e Ac t a l l o we d th e e nl i s t me n t o f E as t e r n E ur o pe a ns wh o w e r e c o nsi d er ed v i ta l fo r o p e ra ti on s b eh i n d t he I ro n C u rt a i n . S o me t hi ng s i mi l a r s h ou l d b e t r i e d t od ay t o r ec r uit f ro m M us l i m s oc i et i es a r ou nd th e wo rld , s t ar ti n g w i t h t h e M i dd l e E as te rn i m m i g r an t c o m m un i t y r i g h t h e r e i n t he
U . S . (T he m o s t r el i ab l e r ec ru i ts w ou l d p ro b ab l y b e e t hn i c o r re l i gi o us mi n o ri ti es w i t hi n Mus li m s oc iet i es — E g yp t ia n C o pts , Mor oc ca n J e ws ,
L e ba n es e D r u z e , I ran i an Az er i s , S a ud i Sh i i t es , Ir aq i a nd Ir an i an Ku r ds , e t c . — j us t a s t he U . S. ha s p re v i o usl y m ad e u s e of m i n o ri ti es s uc h as the
Ph il ip pi n e Ma c ab ebe s a nd th e Vi et na mes e Mon ta gn a r ds .) I be t t h ere w o u l d be p l en t y o f h i gh - qu al i t y r ec r ui ts w h o wo uld be w i l l i ng to s e r v e i n re t urn f or o n e o f t he wo rl d’ s mo s t prec iou s c o mmod i ti es —U.S. c i t i z en s h i p .
I t m i g ht eve n m a k e s e ns e to c r e a te a n en t i r e b ri g ad e o r e v en a d i v i s i o n o f f o re i g n fig h te r s l e d b y A m e ri c a n of fi c er s a n d N CO s . Ca l l i t t he
F r e ed o m L e gi o n, i n h o m ag e to th e F r enc h F o re i gn Le gi o n. S u c h un i t s h a v e b e en s uc c ess fu l l y r ai s e d b y e v er y g r e at p o we r i n h i s tor y . T hi nk , f o r e x a m p l e, o f t h e G u rk h as wh o s ti l l s er v e i n l ar g e nu m b e rs , an d wi t h c o nsi d erab l e di st in ct i on , in the Bri ti sh an d I n di an a r mi es . So me
A m e r i c a ns m a y r ec oi l fr o m th e i d ea o f e nl i s ti ng “ m er c en a ri es ” b ut th es e m e n an d w o m e n w ou l d be a l o t m o re us e fu l an d a l o t m o r e d i s c i p l i ned t h an m os t o f t h e “s ec u ri t y c on tr a c t o rs ” we e m pl o y e n m as s e t o da y i n p l ac es l i k e I ra q. M or e s p eci al i z e d i n di gen o us u ni ts c ou l d b e f o r m e d s p eci fi c a lly t o wo rk in a re as l ik e S o mal ia, Syria , No rt h Kore a, an d I r an , w h e r e th er e i s ei t her n o ef f ec ti v e l oc al go v e r n m e nt o r t he gove r n m e n t i s h o s t i l e to t h e U . S . O S S I I w o uld be a n atu r al re p os i t or y fo r s u c h ou t fi ts , c o nsi d ering th e s ucce ss of t h e o ri gi n al OSS i n ru n ni n g in di g en o us f o rc es s uc h as the K ac hi n tr i be s m en w h o ba tt l ed th e J ap an e s e i n Bu r m a .
I t wo ul d be a bi t m or e of a s t re t c h t o d es i g n at e O S S I I as th e p r i m ar y r ep o s i to r y of na ti o n- bu i l di n g e xp e r tis e wi th i n th e U.S . g o v e r n m en t , b ut g i ve n t h e u nw i l l i n g ness of o t he r a g en c i es , c i vi l o r m i l i t a r y, to fi l l t hi s ya w n i n g g ap , t hi s m i gh t b e t h e m o s t c o n ve n i e nt e x p e di en t . T he ne w O S S c ou l d c u l t i v at e a c or ps of e x pe r ts , c i vi l a nd m i l i t a r y, c o m i n g f rom b o th gove r n m e n t a n d t he pri v a t e s ec to r , wh o w o u l d b e s kil le d i n t he di ff ic ul t t ask of reb ui ld ing st at el ess or war-to r n s oci et ie s i n c oo pe r at i on wi t h ot h e r fe d era l d ep a rtme n t s , i nte r n at i o na l a ge nc i e s ,
A m e r i c a n a l l i e s , an d n on - go v er n m e n ta l o r g an i z at i o n s . T h es e s k i l l s are
7

c l o s e l y r el a t ed to t ho s e ne e ded fo r c ou nt e ri ns u rg en c y , b ec au s e th e mo s t e f fe c t i v e w a y t o c ou n te r a n y i ns u rg e nc y i s no t t o k i l l a bu nc h o f g ue rr i l l as b u t t o c r ea t e a n e ffe c ti v e g o ve r n m e nt th a t c a n p ro v i d e fo r th e n e ed s o f t h e p eo pl e b et t er th an c a n t he g u e rr i l l as ’ s ha do w go v e r n m e nt. W e ha v e p a i d a he av y p r i c e i n I r aq f o r no t h a v i n g s uc h a n a ti o n- b ui l di ng ( or , m o re a c c u ra te l y, s t at e -b ui l di n g) c a pa c i t y o n t ap ; J a y G arn e r’ s O f fic e of
R e c on s t r uc ti o n an d H u m a n i t a ri a n A s s i s ta n c e a n d J e rr y B r eme r ’ s
C o a l i ti on P r o v i s i o n al A ut ho r i t y w e r e l a s t- m i n ut e e x p e di e nts th a t c o ul d n o t p o s s i bl y ha v e s uc c ee d ed be c au s e th e y di d n ot s p en d n e ar l y e n ou g h tim e p r e pa ri n g f o r t he dau n ti ng ta s k of r u nn i n g a c o un tr y o f 2 5 m i l l i o n p eo pl e .
I r ea l i z e th a t t he c re a ti on of a ne w O SS i s a ra dic al no ti on t h at c o ul d no t b e i m p l e m e n te d t o mo r r o w. It w o u l d re qu i re th e m o s t s w e epi n g l e gis l a ti o n s i nc e t he 1 9 87 N unn - C o he n A m e n d m en t t h at c r ea t ed S O COM i n t he fi rs t p l a c e . O bv i o us l y s uc h a s te p n e ed s a go o d d ea l m o r e s tu dy a n d di s c us s i on . B u t i f w e a re t o b e s uc c e s s f ul i n th e L o ng W a r , w e ne e d t o t hi nk ou t s i de o f th e t r ad i t i on a l bu r eau c ra ti c boxe s , b ec au s e th e U.S . g o v e r n m en t a s c u r re n tl y s e t up — a nd tha t m os t ass u re dl y i nc l u d es
S O C O M — s i m pl y i s n o t a de q ua t el y c o nf i g u r ed f o r th e t as k s ah e ad . Gi v e n t h e p ot e nti al th r ea t p o s e d b y o u r e ne m i e s — a th r ea t o f wh i c h w e we r e r e m i nd e d b y n e ws of an Al Q ae d a pl o t to r el ea s e p o i s on g as on t h e Ne w
Y o r k s u b wa y — t h at c o u l d t u rn o u t t o b e a v e r y d a ng e r ou s def i c i e nc y .
T h a nk y o u f o r y o ur tim e a nd att e nt i o n . I w o u l d be h a pp y t o an s w er a n y qu es tio n s y o u m i g ht h a v e .
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8

MAX BOOT
M a x B o o t i s a S e ni or F el l o w i n N a ti o na l S e c ur i t y St u di es a t th e
C o u nc il on Fo r ei gn R e l at io ns i n Ne w Y or k . H e is al s o a w eek l y f o re ig na f fa i rs c o l u m n i s t f or t he Lo s An g el es T i m e s , a c on t ri b ut i n g e d i t o r to Th e
W e ek l y Sta n da r d, an d a re g ul a r c o nt ri bu t o r to The N e w Yo rk Ti m es , Th e
W a s h i n g ton P os t, For e i g n Af fa i r s , an d ma n y ot h er p u bl i c at i on s . In 20 04 , h e w as n am e d b y t he W or l d Aff a i r s C o unc i l s of A me r i c a o ne o f “t he 500 m o s t i nf l ue n ti al p e op l e i n t h e U n i te d S t at e s i n t h e f i el d of fo re i gn p o l i c y . ”
His last book, T h e Sa v ag e Wa rs of Peac e : Sma l l W a rs an d t h e Ris e of
A me r i c a n P o w e r ( B as i c Bo ok s ) w a s s e l e c t e d as on e o f t he b es t b oo k s of
2 0 02 b y Th e Was h i ng t on P os t, T he Lo s A n g el es Ti m e s a nd T h e C h ri s ti a n
S c i e nc e M o n i t o r. I t al s o w on t he 20 0 3 G en e r al W al l a c e M . G re e ne J r .
A w a r d , gi v e n a n nu al l y b y t he Ma r in e Co r ps H er i t a ge F ou n da ti o n f o r t he b e st n o nf ic ti o n bo ok p e rt ai ni ng to Ma ri ne Co rp s his t ory. He is no w c o mpl e ti ng hi s ne xt b o ok , W ar M a d e N ew : T ec h n ol o gy , Wa r fa r e , an d th e
C o u rs e o f H i s t o ry , 15 0 0 t o T od a y , w hi c h w i l l be pu b l i s h ed i n O c t o be r
2 0 06 b y Go t ha m B oo k s , a n i mp r i n t o f P en g ui n ( U SA ) .
B o o t i s a fr e q ue nt pu b l i c s p eak e r a nd gu e s t o n r ad i o an d t el e v i s i o n n e w s p ro gr a m s , bo th at ho m e a nd ab r oa d . H e h as l ec tu r ed a t m a n y m i l i t a r y i ns ti t ut i o ns , i nc l u di ng t h e A r m y a n d N a v y W a r Co l l eg e s , t h e J o h n
F . Ke n ne dy S p ec i a l W a r fa r e Sc h oo l , t h e A r m y C om m a n d and G e ne r al
S t a ff C ol l e g e, M a rin e C or ps U n i v e rs i t y, W es t P oi n t , a nd t he N a v al
A c a de m y . H e i s a me m b e r o f th e U .S . J oi n t Fo r c es C o m m a nd
T r a ns fo r ma t i o n A d v i s o r y G ro up .
B e f o re j oi n i ng t h e Co u nc i l i n O c t ob e r 20 0 2, B oo t s p en t ei g ht y e ar s a s a w ri ter a nd e di to r at T h e W a ll St reet Jo urn al , the last five years as e d i t o ri al fe a tu r es ed i to r . F rom 1 9 92 to 1 99 4 h e w a s a n e di t or an d wr i te r a t T h e C hr i s ti a n S c i e n c e M on i t o r .
B o o t h ol ds a ba c h elo r ’ s d e gr ee i n h i s to ry , w i th h i gh ho n or s , f r o m t h e U n i ve rs i t y of C al i f or ni a , B er k el e y ( 1 99 1 ) , an d a m a s te r’ s d e g re e i n h i s t or y f rom Y a l e U ni v e rs i t y ( 19 9 2 ). He gr e w up i n L o s A ng el e s a nd now l i v es wi th h i s fa m i l y i n t he N ew Y o rk a re a .
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