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RAND C
OUNTERINSURGENCY
S
TUDY
•
F
INAL
R
EPORT
War by Other Means
BUILDING COMPLETE AND BALANCED
CAPABILITIES FOR COUNTERINSURGENCY
David C. Gompert and John Gordon IV
With
Adam Grissom, David R. Frelinger, Seth G. Jones, Martin C. Libicki,
Edward O'Connell, Brooke K. Stearns, Robert E. Hunter
Prepared for the Office of the Secretary of Defense
Approved for public release; distribution unlimited
NATIONAL DEFENSE RESEARCH INSTITUTE
The research described in this report was prepared for the Office of the
Secretary of Defense (OSD). The research was conducted in the RAND
National Defense Research Institute, a federally funded research and
development center sponsored by the OSD, the Joint Staff, the Unified
Combatant Commands, the Department of the Navy, the Marine
Corps, the defense agencies, and the defense Intelligence Community
under Contract W74V8H-06-C-0002.
Library of Congress Cataloging-in-Publication Data
Gompert, David C.
War by other means : building complete and balanced capabilities for
counterinsurgency / David C. Gompert, John Gordon IV.
p. cm. — (Rand counterinsurgency study final report)
Includes bibliographical references.
ISBN 978-0-8330-4309-2 (pbk. : alk. paper)
1. Counterinsurgency—United States. 2. Insurgency. 3. Terrorism—Prevention.
4. Institution building—Government policy—United States. 5. United States—
Foreign relations—2001– 6. Islamic fundamentalism—Political aspects. 7. United
States—Military policy—21st century. 8. Security, International—21st century.
9. Strategy. I. Gordon, John, 1956– II. Title. III. Title: Building complete and
balanced capabilities for counterinsurgency.
U241.M485 2007
355.02'180973—dc22
2008001580
DoD photo by Staff Sgt. Stacy L. Pearsall, U.S. Air Force
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Preface
In early 2006, the O
ce of the Secretary of Defense (OSD) asked
R AND’s National Defense Research Institute to conduct a compre-
hensive study of insurgency and counterinsurgency (COIN), with a
view toward how the United States should improve its capabilities for
such conflicts in the 21st century. is is the capstone report of that
study, drawing from a dozen RAND research papers on specific cases,
issues, and aspects of insurgency and COIN. e study included an
examination of 89 insurgencies since World War II to learn why and
how insurgencies begin, grow, and are resolved. It also analyzed the
current challenge of what is becoming known as global insurgency,
exemplified by the global jihadist movement, as well as lessons about
both insurgency and COIN from a number of cases, including Iraq
and Afghanistan.
e conflicts in Iraq and Afghanistan provide the current policy
context for this study. To be clear, however, the study is concerned with
deficiencies in U.S. capabilities revealed in those conflicts, not with
how to end them satisfactorily. Most new investments to improve U.S.
COIN capabilities would not yield capabilities of immediate use. at
said, to the extent that the findings can help the United States tackle
the problems it faces in Iraq and Afghanistan, this would be a bonus.
Regardless of how Iraq and Afghanistan turn out in the short term, the
United States and its international partners will not have seen the last
of this sort of challenge, and they must become better prepared than
they have been for today’s insurgencies.
It is a mistake to regard COIN as just another form of warfare.
Insurgencies are movements in which opponents of established govern-
iii
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