DTIC ADA550098: Integrating the Full Range of Security Cooperation Programs into Air Force Planning: An Analytic Primer

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Integrating the Full Range
of Security Cooperation
Programs into Air Force
Planning
An Analytic Primer
Jennifer D. P. Moroney, Joe Hogler,
Lianne Kennedy-Boudali, Stephanie Pezard
Prepared for the United States Air Force
Approved for public release; distribution unlimited
PROJECT AIR FORCE
The research described in this report was sponsored by the United States Air Force under
Contract FA7014-06-C-0001. Further information may be obtained from the Strategic
Planning Division, Directorate of Plans, Hq USAF.
Library of Congress Cataloging-in-Publication Data
Integrating the full range of security cooperation programs into Air Force planning : an analytic primer /
Jennifer D. P. Moroney.
p. cm.
Includes bibliographical references.
ISBN 978-0-8330-5268-1 (pbk. : alk. paper)
1. United States. Air Force--Planning—Evaluation. 2. Military planning--United States—Evaluation. 3.
Military policy—International cooperation. 4. United States—Military relations—Foreign countries. I.
Moroney, Jennifer D. P., 1973-
U153.I485 2011
358.4'03 —dc23
2011034075
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Preface
The United States Air Force (USAF) has a long history of working with allies and partners in a
security cooperation context. The Air Force and other Department of Defense (DoD) entities
conduct a host of activities with partner air forces. Many programs (or “tools”) are available
for use when working with partner countries in a variety of contexts. Some of those programs
are directly managed by the USAF; many are controlled by other DoD entities; still others are
controlled by organizations outside DoD. However, there is currently no process for system-
atically tracking all these programs and activities. The result is an information vacuum that
makes USAF planning for security cooperation a very real challenge.
This report will help Air Force planners gain a clearer understanding of the programs
available for working with partner countries around the world. The report supplies USAF plan-
ners with more-accessible information about aviation and other resources for security coopera-
tion, the rules that govern their use, and their application methods. It does so via a construct
created to illustrate how these resources can be employed in partner countries with varying
degrees of capability, capacity, and willingness to work with the United States.
Other RAND Project AIR FORCE documents that address security cooperation and
building partnership (BP) issues include:
• Jennifer D. P. Moroney, Kim Cragin, Eric Gons, Beth Grill, John E. Peters, and Rachel
M. Swanger, International Cooperation with Partner Air Forces, Santa Monica, Calif.:
RAND Corporation, MG-790-AF, 2009.
• Jennifer D. P. Moroney, Joe Hogler, Jefferson P. Marquis, Christopher Paul, John E.
Peters, and Beth Grill, Developing an Assessment Framework for U.S. Air Force Building
Partnerships Programs, Santa Monica, Calif.: RAND Corporation, MG-868-AF, 2010.
• Jennifer D. P. Moroney and Joe Hogler, with Benjamin Bahney, Kim Cragin, David
R. Howell, Charlotte Lynch, and S. Rebecca Zimmerman, Building Partner Capacity
to Combat Weapons of Mass Destruction, Santa Monica, Calif.: RAND Corporation,
MG-783-DTRA, 2009.
• Jennifer D. P. Moroney, Jefferson P. Marquis, Cathryn Quantic Thurston, and Gregory
F. Treverton, A Framework to Assess Programs for Building Partnerships, Santa Monica,
Calif.: RAND Corporation, MG-863-OSD, 2009.
• Alan J. Vick, Adam Grissom, William Rosenau, Beth Grill, and Karl P. Mueller, Air
Power in the New Counterinsurgency Era: The Strategic Importance of USAF Advisory and
Assistance Missions, Santa Monica, Calif.: RAND Corporation, MG-509-AF, 2006.
iii
iv Integrating the Full Range of Security Cooperation Programs into Air Force Planning: An Analytic Primer
The research described in this report was performed as part of a fiscal year 2010 study
“Institutionalizing Building Partnerships: A Strategic Approach” and was conducted within
the Strategy and Doctrine Program of RAND Project AIR FORCE.
RAND Project AIR FORCE
RAND Project AIR FORCE (PAF), a division of the RAND Corporation, is the U.S. Air
Force’s federally funded research and development center for studies and analyses. PAF pro-
vides the Air Force with independent analyses of policy alternatives affecting the development,
employment, combat readiness, and support of current and future air, space, and cyber forces.
Research is conducted in four programs: Force Modernization and Employment; Manpower,
Personnel, and Training; Resource Management; and Strategy and Doctrine.
Additional information about PAF is available on our website:
http://www.rand.org/paf.html
Contents
Preface ........................................................................................................... iii
Figures ........................................................................................................... ix
Tables ............................................................................................................ xi
Summary ........................................................................................................xv
Acknowledgments .......................................................................................... xxiii
Abbreviations ................................................................................................. xxv
CHAPTER ONE
Introduction ..................................................................................................... 1
The Air Force and Security Cooperation ...................................................................... 2
Defining Key Terminology ................................................................................... 2
Understanding the Air Force’s Security Cooperation Mission in a Strategic Context ................. 5
Security Cooperation Program Objectives Relevant to Air Force Planners ............................. 5
Security Cooperation Stakeholders .......................................................................... 6
Security Cooperation Guidance.............................................................................. 7
Report Objectives ................................................................................................ 8
Research Approach and Intended Users ....................................................................... 8
Organization of the Report ..................................................................................... 9
CHAPTER TWO
The Security Cooperation Planning and Resourcing Construct .....................................11
Planning for USAF Security Cooperation ...................................................................11
Gathering Information .......................................................................................12
Knowing the Community ..................................................................................13
Resourcing for USAF Security Cooperation .................................................................14
Training for USAF Security Cooperation ....................................................................15
Using the Program Pages: An Analytical Construct for Security Cooperation Planning and
Resourcing ..................................................................................................16
The Importance of Understanding Objectives and Purposes ............................................16
Selecting Security Cooperation Programs .................................................................17
Working with Potential Partners ............................................................................18
Selecting Security Cooperation Activities ..................................................................21
Conclusion ...................................................................................................... 23
v
vi Integrating the Full Range of Security Cooperation Programs into Air Force Planning: An Analytic Primer
CHAPTER THREE
A Framework for Assessing USAF Security Cooperation Programs .................................25
What Is Assessment? ............................................................................................25
Why Assess? ..................................................................................................... 26
Challenges to Security Cooperation Assessment ........................................................... 26
Determining Causality ...................................................................................... 26
Well-Articulated Intermediate Goals to Inform Decisionmaking ..................................... 27
Assessment Capabilities of Air Force Stakeholders ...................................................... 27
Multiplicity of and Differing Priorities of Stakeholders ................................................. 27
Security Cooperation Data Tracking Systems Are Not Currently Organized for Security
Cooperation Assessment ............................................................................... 27
Confusing Terminology ..................................................................................... 28
Delegating Assessment Responsibilities ................................................................... 28
Expectations and Preconceived Notions of Assessment ................................................. 28
Key Elements of the Assessment Framework ................................................................29
Stakeholders ...................................................................................................29
Levels of Assessment: The Hierarchy of Evaluation ...................................................... 30
Hierarchy and Nesting .......................................................................................33
Generic Security Cooperation Assessment Questions and Data Requirements .......................33
Implementing Security Cooperation Assessments ......................................................... 34
Authorities .................................................................................................... 34
Air Force–Managed Title 10 Security Cooperation Programs ......................................... 36
Non–Air Force–Managed Title 10 Security Cooperation Programs .................................. 36
Title 22 Security Assistance Programs .................................................................... 36
Assessment Functions ........................................................................................37
Conclusion ...................................................................................................... 38
CHAPTER FOUR
The Vignette: Applying the Programs .....................................................................39
Combating Illicit Trafficking and Piracy: A Security Cooperation Planning Scenario ................39
Applying the Analytic Construct ............................................................................ 40
Identifying Objectives and Purposes .......................................................................41
Identifying Potential Security Cooperation Programs .................................................. 42
Prioritizing Potential Partners: Who to Work With ..................................................... 42
How to Work with Selected Partners ...................................................................... 46
Analyzing the Data to Decide How to Work with Selected Partners ................................. 46
Partners’ National Relationships with the United States and the USAF ...............................47
Partner Nation Capability and Capacity ...................................................................47
Prior Security Cooperation Activities ..................................................................... 50
Alphaland: Limited Access Radar Partner ................................................................ 50
Bravolia: General Access Airfield Partner ..................................................................51
Charliestan and The Delta Republic ........................................................................51
Assessing the Activities ........................................................................................52
Conclusion .......................................................................................................53
Contents vii
CHAPTER FIVE
Summary and Recommendations ..........................................................................55
Summary .........................................................................................................55
Recommendations ............................................................................................. 56
Planning....................................................................................................... 56
Resourcing .....................................................................................................57
Assessing .......................................................................................................57
Training ........................................................................................................58
APPENDIXES
A. Program Pages ............................................................................................61
B. Security Cooperation Programs Considered for Alphaland and Bravolia ................... 161
Bibliography .................................................................................................. 165