- By Celeste Ward GventerCeleste Ward Gventer is associate director of the Robert S. Strauss Center for International Security and Law at the University of Texas, Austin. She is a former U.S. deputy assistant secretary of defense and political-military advisor in Iraq.
Whatever your perspective about counterinsurgency (COIN), there is one position that is clearly wrong: the view that debate about COIN is not important, necessary, or productive, as retired Army colonel Robert Killebrew recently suggested over at the Best Defense. Beyond advancing the peculiar idea that a contentious issue in American foreign policy merits no further discussion, Killebrew has it exactly backwards: The debate over COIN is at an important turning point, and is in many ways just getting started. Scholars and strategic thinkers are increasingly engaging the ideas of counterinsurgency in new and sophisticated ways. This development should hearten supporters of the intellectual enterprise generally ,as well as those who embrace the notion that better thinking can lead to better policy.
Last week the Robert S. Strauss Center at the University of Texas (UT) sponsored a workshop, Reassessing Counterinsurgency, together with partners from King’s College London and the University of Queensland. The workshop brought together scholars and practitioners to tackle the subject of counterinsurgency in critically new ways. It included COIN’s most articulate advocates and critics, policy experts, strategic analysts, historians, and political scientists from the U.S., Britain, and beyond who are doing path-breaking new work on the subject.
At least one thing became clear over a day and a half of refreshingly nuanced discussion. Despite years of attention in the Beltway, the counterinsurgency debate remains remarkably muddled. Terms are still frustratingly ill-defined. Distinctions between tactical advice and strategic direction are lost in the jumble, as larger disagreements over policy in Iraq and Afghanistan are tangled into the discussion about COIN. Scholars bristle at what they see as the intellectual shallowness and lack of theoretical rigor of counterinsurgency ideas, while policy hands and some military officers have no patience for what they perceive as the academy’s tendency to suffer from analysis paralysis.
The confused mishmash notwithstanding, the UT workshop surfaced a few recurring themes. As the army is in the midst of revising their counterinsurgency manual, there are at least four key sets of questions that doctrine writers might consider, and that should help shape the scholarly research agenda and the next phase of the debate:
1. Are We Speaking the Same Language?
If the first step in developing good theory is defining terms, then there is much work still to be done in counterinsurgency. There is a growing consensus that the term itself is ambiguous, misused, and has experienced "conceptual stretching." As one workshop participant has written, "in a remarkably short period of time, counterinsurgency has become the new Kuhnian paradigm, or normal science, for non-kinetic (or limited kinetic) warfare. However it is far from obvious that this framework truly captures the dynamics that are occurring in an increasingly complex and interconnected world."
Is "counterinsurgency" merely one type of what scholar Harry Eckstein referred to as "internal war"? If so, how should we understand its features as compared to other manifestations of internal war, such as civil war and revolutions? Taking one step further back, is war divisible into such classifications, or, instead, as Clausewitz would have it, always a chameleon? This most fundamental conceptual question — how (or whether) to subdivide conflict analytically and how counterinsurgency fits into a broader typology — has received surprisingly little attention in the debate over COIN.
There are other important, and largely unanswered, questions. What are the differences between "first-party COIN" — that conducted by a state within its own territory — and "third-party COIN" conducted by an intervening outside power? Is there a difference between "big COIN," or large-scale state-building, and the more modest ambitions of "little COIN," focused on small-scale assistance? If these different types of COIN are significantly dissimilar propositions, should they be called the same thing? The gaps in the theoretical and scholarly literature are legion, and they can only be filled by continued research, better evidence, thinking, and yes, debate.
2. Is Field Manual 3-24 COIN? Is COIN Field Manual 3-24?
These discussions also raise the important question of how to situate the Army’s Field Manual (FM) 3-24, published in December 2006, in the broader literature on COIN. In disputes over counterinsurgency, FM 3-24 and COIN are frequently conflated. Yet their precise relationship remains unclear. Did FM 3-24 represent the state of the art in thinking on counterinsurgency, or was it, as some suggest, merely a military doctrinal manual, a small slice of a larger intellectual pie focused on tactical advice to soldiers and the conflict in Iraq? According to this view, it would be unjust to impugn counterinsurgency more broadly based on perceived deficiencies in the manual, and those who take issue with COIN might best participate in the manual’s revision, rather than throw rocks from the sidelines.
Yet if FM 3-24 was just a doctrinal manual, it was also undeniably unique in many ways. It was certainly the first military doctrine to be unveiled with such fanfare, including appearances by the drafting team in various media outlets to herald the manual’s arrival. One could be forgiven for seeing a larger enterprise in a University of Chicago edition, which featured an introduction that seems to range far beyond the document’s nominal, tactical, remit. FM 3-24 arguably played an important role in the bureaucratic and domestic politics associated with the decision to surge in Iraq, and it seems hard to dispute that various personalities and Washington think tanks linked to the document played a major role in U.S. policy deliberations over both Iraq and Afghanistan. It is a truism that military doctrine is not strategy. But what if, in this case, a doctrine became a strategy, as critics have argued?
As FM 3-24 is revised, it seems a good moment to have a larger debate about the interactive effects of doctrine and strategy, real or prospective. Is COIN per se the right manual, or should it be written as part of a broader document that addresses other forms of internal conflict? Does the mere existence of a manual inevitably create a "moral hazard" effect, lulling policymakers into a false confidence about what is possible? Might it provide incentives for policymakers and strategists to "name" a conflict according to the manuals that are available, rather than the facts on the ground? To what extent should a doctrinal manual take account of the risk of its misuse?
3. History and Statecraft
Counterinsurgency also raises critically important questions about the uses of history. The basis of counterinsurgency is a set of particular historical cases, most notably the British in Malaya, the French in Algeria, and the U.S. in Vietnam, and to a lesser extent the British experience in Northern Ireland and imperial policing operations in the U.K.’s former dominions. These cases raise two different, but related questions: 1. What happened?; and 2. How do we use what happened? Despite the rather blithe use of these historical analogies in many discussions about COIN, both of these questions are highly contested by scholars.
While Malaya is widely considered the perfect case study of counterinsurgency principles (at least as articulated in FM 3-24), a new generation of scholars, such as British historian Karl Hack, has begun to challenge popular understandings of what happened there, including the much discussed "hearts and minds" approach. Scholars are also examining the other case studies of COIN in critical ways and developing new, much more nuanced, understandings of those histories.
But the second part of the question is how we use those cases, and this connects to a larger and long-standing debate about the uses of history for policymaking. At Harvard, the late Ernest May and Richard Neustadt spent decades examining the uses of history and warning against the perils of simplistic historical analogies in developing and/or justifying policy. Francis J. Gavin and James Steinberg recently offered a wise and thoughtful refresher on this subject, reminding us that history’s "lessons" can be as often misleading as helpful.
But this question has received surprisingly little attention in the COIN debate. Despite the certainty with which COIN advocates have offered historical models, it is not at all obvious or well demonstrated that the classic case studies of COIN are applicable to modern American warfare. Imagine that we conducted the very simple exercise, suggested by May and Neustadt, to test the applicability of an historical analogy: Divide a sheet of paper in half, and on the left side write down the similarities between Iraq and, say, Malaya. On the right side, write down the differences. Would the left side really be more robust than the right? And even if the relevance of historical cases seems plausible at first blush, surely the evidentiary burden lies with those who argue for the use of the analogy. In the field of counterinsurgency, there has been surprisingly little deep scholarship that would even begin to meet this burden.
4. What Really Happened in Iraq, and Why? What of COIN in Afghanistan?
Inextricably woven into the previous three sets of questions is the U.S. experience in Iraq during and after the Surge, which, for some, offers the most recent, and most potent, case study in successful COIN. According to this view, COIN, as described by FM 3-24, was taken to Iraq in 2007, implemented there, and violence declined. What better evidence of COIN’s utility than our own experience but a few years ago?
But there are serious and unresolved questions about what really happened in Iraq, and both sides of the argument have suffered from an absence of evidence. It has been hard to prove that the Surge (and its alleged accompanying COIN techniques) worked, but also hard to demonstrate that it did not, and both sides have plausible, but unproven, explanations for the observed outcomes. In an upcoming article in International Security, Stephen Biddle, Jeffrey Friedman, and Jacob Shapiro use recently declassified data on violence to explore various competing arguments about the Surge. Without spoiling the surprise, their answer is that the story is complicated, and reveals the limits of several sides of the argument.
The Iraq question leads us irretrievably to a discussion about how counterinsurgency ideas featured in later policy — and results — in Afghanistan. Here there are also important, unanswered questions that scholars must tackle in coming years. Was the problem that COIN was never fully implemented in Afghanistan, as some argue? Or did the U.S. try, and fail, at counterinsurgency there, as others would have it? Beyond the facts on the ground there is also an important, and insufficiently understood, history of how interpretations of the Iraq experience affected the thinking of military and civilian senior leaders in policy on Afghanistan, for good or for ill.
If indeed COL Killebrew is right that counterinsurgency is here to stay, then so long as we are sending young men and women into danger to undertake such conflicts, it is imperative that we get it right, or as right as we can. We are obligated not to sit back, be quiet, and declare the debate over, but instead work diligently to fill the serious intellectual gaps in this fascinating and critical subject that has had such a profound impact on American policy and real lives on the battlefield.