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Military Operations: Actions Needed to Improve DOD's Stability Operations Approach and Enhance Interagency Planning

GAO-07-549 Published: May 31, 2007. Publicly Released: Jul 10, 2007.
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Highlights

 

Since the end of the Cold War, the United States has frequently been involved in stability and/or reconstruction operations that typically last 5 to 8 years and surpass combat operations in the cost of human lives and dollars. A 2005 presidential directive requires DOD and State to integrate stability activities with military contingency plans. GAO was asked to address (1) DOD's approach to enhance stability operations capabilities, and challenges that have emerged in implementing its approach; (2) DOD planning for stability operations and the extent of interagency involvement; and (3) the extent to which DOD is applying lessons learned in future plans. To address these issues, GAO assessed DOD policy and planning documents, reviewed planning efforts at three combatant commands, and evaluated DOD's use of lessons learned. GAO is also conducting a related study of the Department of State's efforts to lead and coordinate stability operations.

 

Recommendations

Matter for Congressional Consideration

Matter Status Comments
Because it is unclear what specific steps, if any, DOD plans to take to implement our recommendations, the Congress may wish to consider requiring the Secretary of Defense to develop an action plan and report annually to the Senate Committee on Armed Services and the House Committee on Armed Services on the specific steps being taken and current status of its efforts to (1) identify and prioritize needed stability operations capabilities, (2) develop measures of effectiveness to evaluate progress in achieving these capabilities, (3) achieve greater interagency participation in the development of military plans, and (4) fully incorporate lessons learned in the planning process. The Secretary's report should also identify challenges to achieving an integrated, interagency approach to stability operations, and potential solutions for mitigating those challenges.
Closed – Not Implemented
No congressional action was taken in response to our matter for consideration.

Recommendations for Executive Action

Agency Affected Recommendation Status
Department of Defense To meet the goals of identifying and developing stability operations capabilities and for developing tools to evaluate progress in achieving these goals, the Secretary of Defense should direct the Under Secretary of Defense for Policy to provide comprehensive guidance, including a clear methodology and time frames for completion, to the combatant commanders and the services on how to identify and address stability operations capability gaps.
Closed – Not Implemented
Agency commented that the requirement to identify and address stability, security, transition and reconstruction operations capability needs at the combatant commands and Services is effectively addressed by existing, mandated capability assessment methodologies and that the combatant commands assess and communicate to DoD the capabilities required to conduct these mission just as they do for all other assigned military missions. DoD plans no further action.
Department of Defense To meet the goals of identifying and developing stability operations capabilities and for developing tools to evaluate progress in achieving these goals, the Secretary of Defense should direct the Under Secretary of Defense for Policy to provide comprehensive guidance to DOD organizations on how to develop measures of effectiveness as directed by DOD Directive 3000.05, including those measures related to identifying and developing stability operations capabilities.
Closed – Not Implemented
Agency commented that DOD is developing measures of effectiveness in general, no more or less so in the area of stability, security, transition, and reconstruction operations than for any other mission, that existing DOD policy requires all military activities to be measured against established measures of effectiveness, that DOD can address this issues through its existing process for establishing measures of effectiveness and that a new unique methodology is unnecessary.
Department of Defense To achieve greater interagency participation in the development of military plans that include stability operations, and increase the potential for unity of effort as those operations are executed, the Secretary of Defense in coordination with the Secretary of State should provide specific implementation guidance to combatant and component commanders on the mechanisms that are needed to facilitate and encourage interagency participation in the development of military plans that include stability operations-related activities.
Closed – Not Implemented
Agency commented that National Security Presidential Directive (NSPD) 44 should, by itself, provide sufficient direction to facilitate and encourage interagency participation in the development of military plans that include stability operations related activities and that DOD will continue to work with the other agencies to include them in planning and exercising for stability, security, transition, and reconstruction activities.
Department of Defense To achieve greater interagency participation in the development of military plans that include stability operations, and increase the potential for unity of effort as those operations are executed, the Secretary of Defense in coordination with the Secretary of State should develop a process to share planning information with the interagency representatives early in the planning process.
Closed – Not Implemented
Agency commented that National Security Presidential Directive (NSPD) 44 should, by itself, provide sufficient direction to facilitate and encourage interagency participation in the development of military plans that include stability operations related activities and that DOD will continue to work with the other agencies to include them in planning and exercising for stability, security, transition, and reconstruction activities.
Department of Defense To achieve greater interagency participation in the development of military plans that include stability operations, and increase the potential for unity of effort as those operations are executed, the Secretary of Defense in coordination with the Secretary of State should develop an approach to overcome differences in planning culture, training, and capacities among the affected agencies.
Closed – Not Implemented
DOD has worked, and will continue to work, to understand and accommodate differences in planning, training and capabilities development. DOD has provided, and will continue to provide, all possible assistance by opening its training courses to non-DOD Government agencies, detailing DOD personnel to other Government agencies, and actively participating in all interagency processes related to this subject.
Department of Defense To more fully incorporate lessons learned in the planning process, the Secretary of Defense should direct the Chairman of the Joint Chiefs of Staff working with Under Secretary of Defense for Policy to update the current planning guidance to direct military planners to include lessons learned as they develop plans, and require that the plan review process include a step to verify that lessons learned have been considered and adopted as appropriate.
Closed – Not Implemented
The agency stated that this is already being done for stability, security, transition and reconstruction operations.
Department of Defense To more fully incorporate lessons learned in the planning process, the Secretary of Defense should direct the Chairman of the Joint Chiefs of Staff working with Under Secretary of Defense for Policy to include non-DOD stakeholders in the development of the Joint Lessons Learned Information System at an earlier point than currently planned.
Closed – Implemented
DOD partially concurred, to the extent that relevant non-DOD stakeholders are invited to participate in the System at an earlier stage. These stakeholders face shortfalls in the capacity and resources; DOD can invite them to access the lessons learned system, but cannot ensure their active participation in it.

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Topics

Defense capabilitiesEconomic stabilizationForeign governmentsInteragency relationsInternational relationsLessons learnedMilitary forcesMilitary operationsNational policiesPolicy evaluationStability operationsStrategic planning