The last few years have been a strategic fiasco, but this war is still winnable. Here's how.
- By Kimberly KaganKimberly Kagan is president of the Institute for the Study of War and the author of The Surge: A Military History. She has traveled twice to Afghanistan this year to review military operations, the second time as part of Gen. Stanley McChrystal's formal strategic assessment team. The views in this essay are hers and do not necessarily reflect the views of the commander, the team, or the formal assessment.
The war in Afghanistan has not been going well, and it is no surprise that Americans are frustrated. Many observers can rightly point to signs of progress: the functionality of specific Afghan government ministries and programs, the slow growth of the Afghan National Army, the building of major infrastructure such as roads and dams, and agricultural improvements. These accomplishments, however, have not created the conditions that the United States has aimed to achieve: an Afghan state with a competent government considered legitimate by its people and capable of defending them, such that Afghanistan can no longer function as a safe haven for Islamist terrorist groups. Indeed, as Gen. Stanley McChrystal, commander of coalition forces, recently suggested, the situation shows signs of deteriorating: Afghan enemy groups remain highly capable, have gained momentum, and have expanded their areas of operations. Violence against coalition forces is rising. So the question is: Why haven’t we been winning in Afghanistan?
Although I served on McChrystal’s assessment team, I do not know how he would answer this question, nor could I speculate about his recommendations for the strategy going forward. But after much research, as well as two visits to Afghanistan this year, I personally think that the military operations themselves are failing because there has been no coherent theaterwide counterinsurgency strategy in Afghanistan. Despite U.S. President Barack Obama’s newly announced “Af-Pak” strategy, the U.S. and coalition campaign this summer is a continuation of the poorly designed operations from 2008. And the sheer inertia of military operations means that it will be hard to turn this supertanker around for the better part of this year. But turn it around we must, starting with correcting the following flaws in the strategy that McChrystal and his team inherited from their predecessors.
1. Fighting in the wrong places
NATO forces are widely dispersed throughout Afghanistan, even in the Pashtun areas in the south and east, rather than concentrated on one or two priorities. A possible exception is Helmand, the only province in which two brigades are deployed — the British force and the recently arrived U.S. Marine expeditionary brigade. In contrast, during the surge in Iraq, the United States concentrated about half of its forces in Baghdad and its suburbs. Baghdad was the center of gravity of the fight. If we controlled it, we’d win; if the enemy controlled it, we’d lose. So five brigade combat teams — roughly 25,000 troops with their enablers — protected the city of 8 million people. Four more teams protected Baghdad’s southern approaches, and at least one, sometimes two, additional teams protected the city’s northern suburbs.
There is no simple equivalent to Baghdad in Afghanistan. Instead, most of the population — and the insurgency — is dispersed in rural areas. Nevertheless, some areas, such as Kandahar city and the districts around it, are more important — to the enemy, to the Afghan government, and to us — than others. And yet, there are almost no counterinsurgents whatsoever in all but two of the districts around Kandahar, and none in the city itself, just a scant footprint from the Afghanistan national security forces. Worse still, the ratio of counterinsurgents to the population in those two districts is approximately 1 to 44, close to the minimum requirement. A good evaluation of our priorities in Afghanistan would yield a significantly different, and more effective, distribution of coalition forces. This is undoubtedly why McChrystal recently told reporters that he will be concentrating forces around Kandahar city.
2. Fighting in the wrong ways
Another problem is that NATO forces have briefed counterinsurgency doctrine better than they have practiced it. Almost all NATO units in Pashtun areas claim that they are protecting the population by engaging in a sequence of military operations known as “shape-clear-hold-build.” But these forces move through the sequence too rapidly. Based on recent experiences in Iraq, shaping an area requires 30 to 45 days, clearing it requires three to six months, and holding it takes longer than that. With very few exceptions, NATO forces in Afghanistan have never operated on such timelines. They condense shaping and clearing operations into a few weeks, and then they transition prematurely into what they perceive as a hold phase. As a result, NATO forces rarely gain permanent control over areas — or if they do, those areas are so small as to have little effect on the insurgency or the population. The enemy simply dissipates and then returns.
What’s more, coalition and Afghan forces are excessively focused on securing supply lines and reducing the threat of improvised explosive devices through tactical efforts rather than by countering the insurgency. Consequently, many forces — especially Afghan forces — are distributed along the ring road, the main corridor that circles the country. Static positions such as these waste troops. Of course, our forces must be able to maneuver along strategic corridors, but the best way to do that is by securing populated areas and maneuvering off the ring road to defeat the enemy in its sanctuaries and support zones.
In other areas, combat forces are trying to do the right things but, again, in the wrong places. As the Iraq experience demonstrated, successful counterinsurgency often entails distributing forces from larger to smaller bases in order to live among the population. But in some remote areas of Afghanistan’s eastern theater, such as Nuristan, where the enemy has little operational or strategic effect, combat forces have overextended themselves. They have moved off large forward operating bases, pushed into strategically insignificant areas, and established small combat outposts that can barely sustain themselves: The units there are too tiny to do anything but protect their outpost. A better approach is to concentrate forces for counterinsurgency operations and run greater risks in places of lesser importance.
3. Fighting with the wrong assumptions
What too often determines where coalition forces conduct their shape-clear-hold-build operations is the prospect for conducting development projects — not population security. This tends to favor the important over the urgent, the possible over the necessary. For example, major combat operations in the British area of Helmand have been conducted in order to permit development. The Kajaki dam and the agricultural development zone near Lashkar Gah have driven the concentration of forces within the province and, indeed, within the southern region generally. In eastern Afghanistan, U.S. forces have conducted operations to build roads, such as the Khost-Gardez Pass road. These projects are important for long-term development, but they are only sometimes important for achieving our military objectives and should not be allowed to dictate the disposition of scarce military resources.
Moreover, military and civilian efforts in Afghanistan make the wrong assumptions about development. Too often they emphasize the value of a development project as a model — as a demonstration of Afghan government competence and Western goodwill. Completing a specific dam, for example, shows the population that the Afghan government can provide services in general; clearing a specific village shows that the Afghan national security forces can secure the population in principle. But if the model is not replicated widely and rapidly, it’s simply a demonstration of what might be accomplished. Demonstration effects will not defeat the insurgency. Either a venue is secure and has an operating government, or it does not. A good counterinsurgency plan succeeds by generating synergies among good, localized projects — not by identifying a thousand points of light and hoping that they constitute an electrical grid.
4. Fighting successfully — or failing?
Metrics are important in any war, and based on recent reports, the Obama administration is preparing a new set of indicators to measure whether the fight in Afghanistan is succeeding. As important as identifying good metrics is rejecting bad ones. Violence against coalition forces, for example, is an unreliable indicator of success or failure. For one thing, as we saw in Iraq, violence against friendly forces can increase at the start of a counteroffensive to regain control of areas that the enemy holds. No violence, in turn, might mean that an area is completely controlled by the enemy. The metrics of success are not simply statistics, and they cannot be determined independently of a campaign plan, which sets out a hierarchy of tasks and objectives.
5. Can we win?
Some answer simply and sharply in the negative: They claim that Afghanistan has never been centrally ruled (which is wrong) and that it has been the “graveyard of empires” (which is true in only a specific handful of cases). Failure is not at all inevitable. The war in Afghanistan has suffered almost from the start from a lack of resources, especially the time and attention of senior policymakers. The United States prioritized the war in Iraq from 2007 until 2009, for strategically sound reasons. Some of this parsimony also comes from flawed theories of counterinsurgency: U.S. Secretary of Defense Robert Gates, for example, misreads the Soviet experience in Afghanistan, which has consistently led him to argue incorrectly against expanding the size of the force there, claiming that it increases the risks of failure.
We can win in Afghanistan, but only if we restructure the campaign and resource it properly. Adding more resources to the military effort as it has been conducted over the past few years, without fundamentally changing its conception, design, and execution, would achieve little. This was also the case in Iraq before the surge, and the change in strategy and campaign plan that followed was as important to success as the additional resources. This explains why McChrystal might adopt a different campaign design — perhaps requiring additional military resources — when he submits his formal assessment to the U.S. secretary of defense and NATO secretary-general sometime after the Afghan elections.
The fact that we have not been doing the right things for the past few years in Afghanistan is actually good news at this moment. A sound, properly resourced counterinsurgency has not failed in Afghanistan; it has never even been tried. So there is good reason to think that such a new strategy can succeed now. But we have to hurry, for as is often the case in these kinds of war, if you aren’t winning, you’re losing.