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 The Limits of Counterinsurgency Doctrine in Afghanistan

The Other Side of the COIN

Foreign Affairs, September-October 2013

(General and Ambassador) Karl W. Eikenberry

Since 9/11, two consecutive U.S. administrations have labored mightily to help Afghanistan create a state inhospitable to terrorist organizations with transnational aspirations and capabilities. The goal has been clear enough, but its attainment has proved vexing. Officials have struggled to define the necessary attributes of a stable post-Taliban Afghan state and to agree on the best means for achieving them. This is not surprising. The U.S. intervention required improvisation in a distant, mountainous land with de jure, but not de facto, sovereignty; a traumatized and divided population; and staggering political, economic, and social problems. Achieving even minimal strategic objectives in such a context was never going to be quick, easy, or cheap.

Of the various strategies that the United States has employed in Afghanistan over the past dozen years, the 2009 troop surge was by far the most ambitious and expensive. Counterinsurgency (COIN) doctrine was at the heart of the Afghan surge. Rediscovered by the U.S. military during the wars in Afghanistan and Iraq, counterinsurgency was updated and codified in 2006 in Field Manual 3-24, jointly published by the U.S. Army and the Marines. The revised doctrine placed high confidence in the infallibility of military leadership at all levels of engagement (from privates to generals) with the indigenous population throughout the conflict zone. Military doctrine provides guidelines that inform how armed forces contribute to campaigns, operations, and battles. Contingent on context, military doctrine is meant to be suggestive, not prescriptive.

Broadly stated, modern COIN doctrine stresses the need to protect civilian populations, eliminate insurgent leaders and infrastructure, and help establish a legitimate and accountable host-nation government able to deliver essential human services. Field Manual 3-24 also makes clear the extensive length and expense of COIN campaigns: “Insurgencies are protracted by nature. Thus, COIN operations always demand considerable expenditures of time and resources.”

The apparent validation of this doctrine during the 2007 troop surge in Iraq increased its standing. When the Obama administration conducted a comprehensive Afghanistan strategy review in 2009, some military leaders, reinforced by some civilian analysts in influential think tanks, confidently pointed to Field Manual 3-24 as the authoritative playbook for success. When the president ordered the deployment of an additional 30,000 troops into Afghanistan at the end of that year, the military was successful in ensuring that the major tenets of COIN doctrine were also incorporated into the revised operational plan. The stated aim was to secure the Afghan people by employing the method of “clear, hold, and build” — in other words, push the insurgents out, keep them out, and use the resulting space and time to establish a legitimate government, build capable security forces, and improve the Afghan economy. With persistent outside efforts, advocates of the COIN doctrine asserted, the capacity of the Afghan government would steadily grow, the levels of U.S. and international assistance would decline, and the insurgency would eventually be defeated.

Blindly following COIN doctrine led the U.S. military to fixate on defeating the insurgency while giving short shrift to Afghan politics.

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