The objective of this important course is to orient chiefs (and deputy chiefs) of mission about two subjects: 1) how they can themselves play an expeditionary role in effecting political change, and 2) how they can best use the talents of an expeditionary team to help shape political progress in an assigned vulnerable country. The orientation course will include in summary fashion the essential elements of the basic training course for expeditionary personnel. This is intended to ensure that the chief of mission and his/her deputy are working off the same page as their assigned expeditionary team.
It is important that all chiefs and deputy chiefs of mission who will have expeditionary teams serving under them receive this orientation in advance of team assignment. Assembling a class of at least eight at a time is likely to be a scheduling challenge. Some may have already been assigned to a particular country and will need to be recalled; others may be at different posts awaiting assignment. However, such scheduling challenges can be overcome. Given the limited number of vulnerable countries designated for the assignment of expeditionary teams, these orientation classes are unlikely in any case to have more than ten attendees at a time.
In most instances, the staff faculty involved in the basic course will also lead the orientation classes. The method of instruction will consist mainly of lectures along with intensive class
discussion. The proposed orientation will cover the following subjects with the overall course taking approximately 12 working days to complete.
• Review of US and allied policies and practices for transition/stabilization assistance.
This section will provide an overview of applicable US policies and approaches, organizations, and available funding for transition/stabilization assistance to vulnerable countries. This will include a survey of NGO operations and activities as well. The existence of special funds for certain regions (Middle East and North Africa, for example) and how they might be tapped will be reviewed. This instruction will assume that the participants have a certain basic knowledge of the subject matter but that it needs to be updated.
• Understanding the vulnerable state operating environment.
Participants will explore the significant differences between relatively stable states and the situations likely to prevail in most vulnerable countries, with relevant examples. The concept of a “competitive political environment” in which democratic proponents compete with antidemocratic forces will also be examined. Moreover, participants will explore the kinds of information that will be needed to effectively map a competitive environment and to develop a political strategy and action plan to support democratic transition and stabilization.
• Thinking politically and the need for and utility of political strategy and action plans.
Participants will consider what it means to think and to act politically. They will review the definitions of political action and strategy, and then they will consider successful and unsuccessful examples of political strategy and action in foreign countries from the Cold War to the present. They will then explore how a political strategy and action plan could be used to supplement traditional diplomacy and conventional security and socio-economic development assistance programs. Moreover, participants will discuss how political strategy could be used to guide the development of current mission planning documents including the Mission Strategic Resource Plan.
• How to be an effective expeditionary diplomat.
This will provide an overview of how effective expeditionary diplomats establish trusting partnerships to become advisors and catalysts of positive political change. Included will be a review of the personality characteristics as well as skills required for an effective political action operative in the field. The need for expeditionary personnel to have the opportunity and freedom to build local relationships of mutual trust will be stressed. The participants will also explore how the work of expeditionary personnel could supplement and support the work of chiefs of mission. This would include assistance with intra-mission coordination and the use of more informal “back door” access to indigenous leaders to enhance formal efforts.
• Political organizing and conflict mediation.
This section will provide a summary briefing on the principles and techniques of effective political organizing and conflict mediation. Participants will discuss how these techniques might be applied in typical vulnerable state situations, from organizing civil society groups to fostering the development of national compacts.
• The political dimensions of stabilization/transition assistance.
During this component, participants will be briefed on best practices in security sector reform, Rule of Law, and social and economic development. By reviewing case studies, they will analyze the political opportunities and obstacles likely to be faced by expeditionary officers in each of the sectors. The importance of measuring the value of various sector-specific programs in terms of their short- and long-term political impact will also be discussed. Finally, the participants will consider the political dimensions of development, including how political strategy, assessment, and action can improve performance of sector-focused programs given typical vulnerable state situations.
• Democratic development and improving indigenous government effectiveness.
Participants will consider the range of obstacles and opportunities for fostering democratic development and transition by reviewing a number of cases studies, including both successes and failures. Participants will also discuss the core functions of effective states and the interrelationship between democratic development and the responsiveness and effectiveness of government. This will focus particularly on approaches to improving indigenous governance.
• Information and media.
Participants will review the conventional embassy/mission public diplomacy role and programs in the light of a more proactive, media and information-based approach that aims to foster indigenous political dynamics. Examples of actions that could be taken to support local prodemocratic media will be explored, including how expeditionary team members could work through NGOs to support such efforts.
• Models of expeditionary diplomacy.
The purpose of this part of the orientation is to provide the knowledge of how they, as chiefs of mission, could and should play a proactive role in promoting stability in vulnerable countries. How to work effectively in partnership with the US military in advisory situations will be covered. Participants will review and discuss case studies in effective expeditionary diplomacy, an outstanding example being that practiced by Ambassador Crocker in Iraq.55 This aspect of the orientation leads into the next subject about making effective use of expeditionary teams.
55 Linda Robinson, Tell Me How This Ends: General Petraeus and the Search for a Way Out in Iraq, 148-152, 268-272.
This book, although mainly about General Petraeus, gives a summary view of the political advisory activities of
Ambassador Crocker, how he was able to insert himself and key members of his staff into the Iraqi political process with positive effect and how he was able to work cooperatively with the military.
• Supporting and supervising the operations of expeditionary teams.
This part will focus on how participants, as chiefs and deputy chiefs of mission, can best supervise and support expeditionary team operations. The course will review previously adopted administrative arrangements and operating guidelines for expeditionary teams posted to US missions. Issues of coordination and fostering cooperation within the mission as a whole and with other agencies will also be discussed. The importance of avoiding micromanagement and giving the expeditionary team sufficient freedom of action to achieve results will also be considered. The need for team members to have access to a wide range of indigenous political groups will be discussed, as will the need for the team leader to have direct access as necessary to high-level leaders and officials. For the work of the expeditionary team to be successful, the need for staunch backing by chiefs and deputy chiefs of mission will be emphasized. To buttress this and other points, case studies will be used as necessary.
Orientation participants will also discuss the development of a mission-level political strategy, as well as how an existing overall mission strategy can be adapted to reflect changing political reality on the ground. How the expeditionary team and particularly the team leader could help with these planning efforts will be described and discussed. Moreover, the need for responsiveness in making tactical operational changes in light of changes in local political conditions will be stressed. Also, how the expeditionary team could help chiefs of mission coordinate stability and transition efforts will be discussed.
Finally, the class will discuss the ground rules for keeping the chief of mission and his deputy informed. This will include discussion of expeditionary team reporting and accounting requirements. Guidelines and procedures concerning use of the proposed operational fund to support team operations will receive particular attention. How special security arrangements could be developed and approved for expeditionary team members will be considered. This particular component of the orientation course is estimated to require two days to discuss and complete.
• Orientation Course Review.
It is estimated that one additional day will be needed to review the main points of the orientation, to review participant understanding of its content and to clarify as necessary various questions.