APPENDIX III

The document that follows is one of the most influential documents of the past quarter-century. It was written and compiled from the work of many nameless and faceless authors within the government and from other sources close to these men in the academic world and the world of business. It was drafted by an Army General, Richard G. Stilwell, while he was serving as a member of a special Presidential committee. It includes much material written by Air Force General Edward G. Lansdale, among others. Its origins come from the depths of a special source reaching far back into the history of the man. Its twentieth-century manifestation occurs in the Russian Revolution of 1917 and in other revolutions since that time. These paramilitary ideas and methods know no ideology and no creed or code. They are the craft of those who would seek power and of those who would fight wars by technical means, and who would utilize the military organization of the state to gain that power by influencing the minds of the "elite", by engaging in social, political, economic, and almost incidentally, military activity.

      As we have said this course of action begins with a high-sounding resolve to improve the lot of the poor "under-developed" nations, using the vehicle of the Military Assistance Program to take over the army of that country. This then is repeated in other countries, as we have seen, becoming evident in recent times in such countries as Greece and Brazil, among others.

      If this were all that it meant we might be able to treat it lightly as another evidence of the inherent activity of the "do-gooder" instinct of Western man. However, it is only reasonable to see, in this action, the ominous fact that it is the American soldier who is the teacher of this doctrine;   and it is the same American soldier who becomes his own student. Since this action was begun in 1959 tens of thousands -- yes, hundreds of thousands -- of American military men, a whole new generation, have grown up believing that this is not only the right thing for "those foreigners" but for Americans as well.

      The following document begins mildly and almost reasonably. It gets to the heart of the matter smoothly and without alarm. However, as it builds and creates its own crescendo it begins to veer from its scholarly and well-tempered tone and approaches the type of delivery made famous by such men as Hitler, Mussolini, and Joseph Stalin. When highest officials of this Government assert that the majority of the nations of the uncommitted "Third World" would be better off under the control of their military elite, an elite to be selected by Americans, it is time for other Americans to read, to listen to, and to sound the warning on the possibility that this same American elite may not become persuaded of its own role in this country.

      Note that this paper was drafted in May 1959. It was drafted during the Eisenhower Administration, and it was a forerunner of such catchwords, generally associated with Presidents Kennedy and Johnson, as counterinsurgency, pacification, special forces, subversive insurgency, and the like. These terms had all been introduced before Kennedy's tenure and were simply awaiting their day in the world of the Secret Team.

      In keeping with Secret Team practice, this so-called draft was unclassified so that it could be processed through all sections of the elite without control of transmittal or copies.

May 15, 1959
TRAINING UNDER THE MUTUAL SECURITY PROGRAM
(with emphasis on development of leaders)

      CONTENTS

 

 

I -- INTRODUCTION



The Committee has thus far placed primary stress on defining the quantitative threshold and material guidelines of a continuing mutual security effort. Yet the Committee is mindful -- and indeed so stated in transmitting its Interim Report -- that an adequate United States contribution to the security and growth of our Free World associates, and particularly the less developed countries, involves much more than the provision of military hardware and economic capital, vital though these ingredients be. The indispensable complement, and a clear third dimension of United States programs, is the development of requisite institutional frameworks, managerial organizations and individual talents to effectively use the physical resource inputs. The Committee has had reports, from all quarters, that the severe shortage of trained executives, administrators, and other categories of decision makers is a major impediment to balanced economic growth in the less developed areas. It is conscious that arms alone do not an army make;   that leadership, collective motivation, and identification with the aspirations of countrymen are equal determinants of a military establishment adequate to its tasks and compatible with its environment. It is impressed with the magnitude of the tasks which face the fledgling nations in the quest for symbols to replace those no longer valid;   in the adaptation of cultural heritage to new settings;   in the development of political, social and ideological foundations;   and in meeting today's manpower deficiencies while laying the educational base for the future.

      One is impelled to speak out on this subject because the record demonstrates that, far from receiving major attention, human resources development has been relegated to secondary importance.

II -- THE PRESENT PATTERN



Admittedly, there are impressive statistics as to the numbers of foreign personnel who have received training, under auspices of the Mutual Security Program, in the United States, in their own countries, or in third areas. But the concept and the approach have been largely mechanistic. While there has been a measurable shift in the past year, the bulk of ICA training programs are still "project-oriented":   designed to meet the specific administrative, technical, and professional skill requirements generated by the concurrent ICA developmental activities. Likewise, the thrust of the massive training programs of the U.S. military departments has been determined by the materiel aspects of the MAP:   production of specialists, technicians and junior tacticians to handle the equipment and systems furnished.

      Certainly, these instructional efforts have been essential. Certainly also, such programs must continue, and probably at an expanded rate.

      In the military area, new technical training dimensions are explicit in the second round of arms aid involving provision of advanced weapons systems for the NATO nations and an accelerated rate of modernization elsewhere. They are also explicit in the commendable new emphasis on improvement of indigenous logistic apparata and operating techniques. The Committee is confident that the minor obstacles to expansion will be surmounted and that the Defense agencies will press on to develop and implement programs of requisite scope in these categories.

      In the civil sector, one need only contemplate the staggering estimates of skill deficiencies throughout Afro-Asia to appreciate the magnitude of the gap. Unlike the military, the ICA's ability to meet any measurable portion of this widening gap, at the technical level, is limited by the general inflexibility of its operational base -- built of direct hire personnel and a system of contract which demand detailed governmental administration, planning and supervision. There is a need to change the nature of the base, to bring the tremendous strength and unparalleled competence of our non-governmental institutions to bear on this training problem and, concomitantly, to shift the government role to the more suitable tasks of broad planning, support, and arrangements vis-à-vis the foreign authorities concerned. The modalities of this shift have been explored in other committee papers.

      The Committee's principal concern -- and consequently the subject of this paper -- is that training objectives have been so severely circumscribed, so inadequately related to the full sweep of our own national interest and of the recipient countries as well.

          THE SHORTFALLS
Review of what is being done, and projected, in the training, educational and related fields by the combined efforts of the Department of Defense, the International Cooperation Administration and the International Educational Exchange Service reveals many shortfalls. The following are representative:

      And of overriding moment has been the near universal failure to understand and accept concomitant responsibility for the political and psychological orientation and motivation of the trainee, the participant, the counterpart. There has been no guidance or concerted approach in the sensitive but vital area of inculcating, or testing for, compatible precepts of public morality, social responsibility and personal ethics. Notwithstanding the intensity of the struggle for the allegiance of the "middle billion", influence on the thought, habit and attitudes of these peoples, and on the institutions that bind them together, has been left to chance.

      Confronted with these broad deficiencies, the Committee can only conclude that the Executive Branch has grasped neither the measure of the challenge nor the inestimable potential inherent in the human side of development.

      In rendering what is tantamount to an indictment, two tempering considerations have been recognized. The first is a series of factors, cumulative in effect, which serve to place finite limits on the pace and scope of the corrective actions implied by the foregoing compendium of criticisms. The second involves several initiatives, independently pursued unfortunately, with the aim of improving the direction, the depth and the substantive payoff of activities in the human resources field. Neither was sufficiently weighted to invalidate the basic conclusion. Both, however, have had an impact on the proposals to be presented subsequently. They therefore merit treatment in general outline.

          THE LIMITATIONS
The formidable obstacles to rapid expansion and improvement of these activities include such diverse factors as political sensibilities and attitudes, legal restrictions, availability and qualification of trainees and trainers, capacity of facilities, and financing problems. Moreover, they are so intermeshed that all must be attacked concurrently. Among the more significant:

          ENCOURAGING SIGNS
There has been evidence, in recent months, of increased U.S. awareness of the import of the broader aspects of training. Constructive moves include the following:

While commending these initiatives, the Committee has noted that follow-up has lacked vigor;   and that even optimum execution would produce results far short of the minimum essential advance.

III -- NEW HORIZONS



Policy formulation is not a pre-condition to a more comprehensive and responsive program to improve human knowledge, skills and attitudes in the less developed areas. The importance and compelling need therefor is amply underscored in official statements of basic United States security policy. The requirement is widespread recognition, in sectors public and private, of the essentially of properly trained and motivated manpower to the hoped-for evolution of the middle third of the world. This recognition can be stimulated. Education is, after all, among the most cherished elements of the American tradition;   and expanded programs provide an opportunity for new initiatives in the conduct of our foreign policy.

      The Committee appreciates the substantial nature and diversity of the educational, training and cultural programs -- binational and international, public and private -- now underway outside the purview of the Mutual Security Program and the International Educational Exchange Service;   for example, upwards of 100 organizations have programs for Pakistani. Not having examined these programs, no comment is made thereon. In most cases, the United States can exercise only minimal control over the direction of these other activities;   she has, however, the continuing information and influence to insure against duplication.

      A look at the vastness of the requirements and at the current activities of the training and educational activities of the MAP, ICA and IEES have focused attention on four general areas. A vigorous approach to all four will provide the basis for the program our security interests demand. The areas, to be discussed in some detail, are:

IV -- LEADERSHIP PROGRAMS



This, clearly, is the key challenge. All reports emanating from abroad conclude that a major, if not the principal, impediment to progress in the Afro-Asian countries is the severe shortage of individuals capable of filling responsible positions responsibly. Were this not reason enough to expand and improve our leadership programs, there is another -- the traditional activities and growing capabilities of the Soviet Union for the development and control of elite groups.[1] We may elect to stand aloof from competition with her in the supply of military and economic aid. In the leadership area, we cannot!

          NON-MILITARY SECTOR
Ways and means of achieving better performance in the top level managerial field have been well explored in various U.S. agency studies.[2] These suggest certain concurrent planning and implementation actions addressed directly to the shortfalls tabulated previously. It is to be noted that the efficacy of these actions will be largely a function of the initiative and competence of our Country Teams.

ORGANIZATIONAL ASPECTS

Development of Country Plans
There is a requirement to stimulate and, where national sensitivities permit, to offer technical and other assistance for the establishment of machinery and procedures for systematic surveys and analyses of the manpower situation. None of the less developed nations has yet evolved anything approaching a human resources annex in support of national developmental plans. They are not, therefore, capable of measuring the gap over and above the actual and predictable outputs of indigenous institutions and the several operative overseas programs, or of sharply identifying priority of needs in public administration, in industry, business and labor, or in education.

      This is patently a long term project, to be attacked incrementally. Other actions should not depend thereon.

Shift in Emphasis of U.S. Programs
Valid suggestions encompass two main categories:   the immediate and the longer range.

      The first envisages expansion of IEES "leader grant" programs;   ICA attention to the private entrepreneurial sector and to the decision-makers in other than the public economic sector;   and greater participation by U.S. professional associations, major foundations, and private institutions.

      The longer range problem dictates substantial entry into the field of undergraduate and graduate education in the U.S. to groom the future leadership, and in addition, the concept of "junior year abroad" for students studying in their home countries. It also involves, on a major scale, the collaboration of American universities, industry, and professional associations in conducting special "workshops", on-the-job training and specialized projects, for national or multi-national groups, in all pertinent fields.

      The longer range program holds the most promise. For one thing, there will be fewer conflicts with the immediate operating needs of the governments. More important, the collegian or junior executive is in his formative years. He may ultimately embrace an alien philosophy but only if the suasion is of the highest caliber;   the lasting influence of undergraduate associations and intellectual intake is not to be underestimated.

Implementing Steps
The foregoing steps will require some additional funds, for they are additive to the essential activities now underway. They also imply some changes in legislation to remove restrictions on utilization of available local currency and, perhaps, to countenance the new directions (as, for example, wholesale departure from the general one year limit on training duration). It also involves expansion of staff and closer coordination among participating U.S. agencies and institutions.

      These concrete steps are manageable for they follow established patterns. But there are others -- less tangible infinitely more difficult.

SUBSTANTIVE ASPECTS
Selection of Personnel
It is evident that the success of the entire effort hinges on wisdom and foresight in the choice of trainees. And the burden thereof falls squarely on the U.S. field organizations. Effective performance pre-supposes that the Country team:

Training Framework
It is not enough that the training or orientation course itself be carefully designed and competently conducted. The preparation of the trainee and his handling as an individual are of equal import. There must be facilities for, and help in, refresher instruction in English and other Western languages, where indicated or feasible;   in this connection, it is essential that the selection base not be limited to those possessing a knowledge of English. There is the matter of cushioning transition from native habitat to the American scene and educational methodology and the consequent requirement for painstaking orientation prior to and after the overseas voyage;   and the inverse to help adapt the individual for the return home and subsequent communication to his compatriots.[3] Beyond this -- as discussed more fully in another section -- is the matter of the comportment of the Americans with whom he is professionally and socially in contact:   his acceptance as an equal;   the understanding afforded his views; the intellectual and ethical challenges presented. The field, the Washington staff, and all others concerned share responsibility for the quality of the resultant impact.

The Follow-Up
The importance of continuing contact with the key decision-maker, actual or potential, subsequent to his training is self-evident. Sober reflection, after the individual's return and in light of new responsibilities, may produce valuable ideas on how training may be altered for improved applicability. Up-to-date knowledge of the individual's professional progress, evolving philosophy and attitudes provides the basis for evaluation of impact;   tightens the bonds of association;   determines the need for or desirability of further training;   and generally promotes the U.S. national interest. The follow-up activities involve arduous tasks for the field. But there is no other means of determining program results or of exploiting the success achieved.

      It may be asked if the Country Teams are now equipped and oriented to handle the responsibilities thus enumerated. Our own reservations on this score have given impetus to the companion annex on the U.S. personnel implications of the Mutual Security Program.

          MILITARY SECTOR

RATIONALE

For reasons both military and political, there are pressing requirements for new foci in leadership programs for the Officer Corps of the MAP supported forces -- and, gain, principally of the less developed areas.

      In the first instance, effective control and maneuver of armies (and to a lesser extent the naval and air arms) of growing modernity poses for the senior officers of the several military establishments, professional equipment requirements not dissimilar to the needs of the United States Services:   an adequate mastery of military concepts and doctrine;   and competence in tactics, logistics and management.

      It is not enough, however, to restrict leadership inputs to U.S. norms. Except in specifically defined circumstances, our Armed Forces have no operative responsibilities within national frontiers;   conforming generally to the precepts of Western democracies, they are not an integral part of the mechanism for maintenance of law and order. The prevailing concept is expeditionary -- an instrument of latent power, unentangled domestically, ready for projection abroad should the exigency arise. Not so for the great bulk of the forces of the new nations. Their role has additional dimensions and their missions are actual as opposed to contingent. They are a key element in the maintenance of internal security and are largely determinant of whether stability or instability characterizes the routine of government. The Officer Corps is perforce deeply involved in domestic affairs. Those who lead, or are destined to lead, must therefore acquire qualifications and attributes beyond the criteria which identify the successful commander in combat.

      Finally, the ranks of the Officer Corps in most less developed countries are a rich source of potential leaders of the national civil service, the professional class, and other non-military sectors. Here one finds a high degree of discipline, dedication and political moderation. Moreover, one must reckon with the possibility -- indeed probability -- that the Officer Cops, as a unit, may accede to the reins of government as the only alternative to domestic chaos and leftist takeover. Both considerations point to a program for selection and preparation of promising officers for eventual occupation of high level managerial posts in the civil sector, public and private.

GUIDELINES
It is recognized that practical limitations confront, over the short term, major augmentation of top level military leader programs -- limitations which are identical with those described under the non-military sector. Notwithstanding, there is substantial scope for upgrading the military assistance training programs of the U.S. service departments in conformity with the foregoing.

Higher Level Military Education
Such programs merit first priority. Three avenues are open:   development of regional facilities coupled with more extensive bi-national exchanges within regions;   augmented local institutions; and accommodation of a larger senior officer load in the U.S.

Civilian Schooling, Undergraduate and Graduate
This envisages team play as among MAP, ICA and IEES at the country level. ICA and IEES are in a position to finance the education, in the U.S. or third countries, of high caliber career officers in military-applicable fields such as psychology, political science, law, engineering and business administration. MAP can assist ICA in the identification of officers who should be trained for key responsibilities in the civil sector. IEES can assist in the establishment of middle level courses in local educational facilities for officer instruction in administration, finance, military justice and management.[4]

Orientation and Observer Visits
The upper limits of the modest increase in Stateside trips for leaders prescribed (with qualifications) by the Department of Defense should be attained and exceeded. Strains on the military departments would be eased by shifting emphasis from the extreme top level of the military hierarchy to the potential successors a few years hence:   the representational burden would be less, the communication problem more surmountable, and the benefits more lasting. Our officials have probably been overconcerned about representation, insufficiently attentive to the substantive impact sought. Where language capability exists, senior foreign officer itineraries should encompass (or even built around) participation in scheduled University or Association seminars and conferences, judged to be within the visitor's scope of interest by reason of functional or geographic coverage;   dividends would accrue from his chance to contribute and by his viewing of civilian-military collaborations as practiced in this country. MAP should also support regional conferences to improve personal contacts and promote exchange of ideas and techniques among the military elite of adjacent countries. One possible result, of great value, might be the emergence of more uniform and viable concepts of civil-military relationships.

The Neutral Countries
The stakes for which we contend justify attention to every possibility to improve the competence and influence the orientation of the office corps of these nations. The attach personnel should be so instructed;   and the special efforts involved in securing Presidential determinations for training in the U.S. or third countries accepted.

The Advisory Role
The key influence in the development of military leaders of superior motivation and integrity may well be that exerted by the MAAG personnel. It is mentioned here because it is integral to this discussion. However, the cardinal importance of this function dictates separate treatment in subsequent pages.

      Akin thereto, applicable to the military sector, and incorporated by reference, are what have been called the "Substantive Aspects":   the responsibilities of U.S. personnel in the selection of trainees, in the establishment of the training environment, and in the follow-up and evaluation phases.

      A collateral requirement, common to all training in the U.S. is expansion of English language instructional facilities in the cooperating countries. The U.S. Military Departments, the USIS, and the USOMs have all made some inroads on this problem in various ways.[5] But the demand, even at present level of activity, is far in excess of available capacity. Here, then, is a principal bottleneck. A coordinated effort, built around the relatively large USIS operators in most countries, is indicated.

          SPECIAL PROBLEMS OF AFRICA

It is appropriate, at this juncture, to point up the leadership implications of the African continent, and more especially those portions still in colonial status or newly emerged therefrom. The sovereign state of Ghana, for example, mans only a third of the essential posts in her embryonic civil service;   for another -- and the critical -- third, she is quite dependent on alien employees without assurance of tenure;   and the remainder are unfilled. In the non-British colonies, the situation is worse. The problem is staggering. On the other hand, Africa is the one area of the world where we have the leisure for forward planning, where we can lay the groundwork for the sort of comprehensive attack outlined by the Presidential Task Group, where we can begin to identify and groom the future national leaders. The overall approach should be multi-lateral, combining Western European efforts and our own, with broad African representation. We should, however, have a highly selective unilateral program. For any long term African project, looking to the development of high-level managerial talent, to be successful, an adequate planning-operational task force must be fielded, peopled largely by juniors and with their futures guaranteed so the continuity may obtain. Its members should embrace political, economic, military, sociological, anthropological and other competence so the approach will be comprehensive and balanced from the outset.

V -- DEVELOPMENT OF INDIGENOUS EDUCATIONAL SYSTEMS



          THE SITUATION
Their importance notwithstanding, programs for the production of leaders, professionals and skilled technicians -- the emphasis of the US. training effort -- are designed only to provide an adequate superstructure. A parallel, even more pressing, need is the development of the base;   for if progress is sensitive to the quality of leadership, it is also dependent upon effective response of those who follow to the leader's bidding. In the less developed areas, an adequate response of not forthcoming;   nor can it be forthcoming so long as ignorance, illiteracy and lack of basic skills are characteristics of the great bulk of the citizenry. Education of the human beings which constitute the major resource of the poorer countries is a fundamental requirement.

      The nations of Latin America, Asia and Africa are conscious of the weaknesses -- in breadth, depth, diversity and quality -- of their educational systems;   of the urgency of remedial action, and of the magnitude of the gap, in capital and human terms. They are equally conscious that the responsibility is theirs and theirs alone;   it could not be otherwise, for educational institutions are so linked to the national character and fabric that no sovereign state can readily accept collaboration in the design or direction thereof. On the other hand, significant expansion of facilities involves major outlays of capital which is just not available in most countries.

      Financial assistance to indigenous educational institutions has not been a feature of U.S. aid programs, although minor amounts have been expended on schools directly linked with economic development. Other demands coupled with legal restrictions have precluded use of any significant amounts of U.S. foreign currency holdings for the support of cooperating country school systems.[6] Indeed, there have been complaints that U.S. aid programs have operated to the detriment of supported country investment in national schools:   it is said, in Latin America, that the pattern of development aid has required such large scale use of local currency resources, as matching contributions to complete, and thereafter maintain, major construction works that the development of public infrastructure, and notably schools, has fallen well behind needs.

          A PROGRAM BASIS
There is a rising clamor, within and without the U.S. government for a strong program of aid to the educational institutions of the low income countries. It is convincingly argued that only by broadening and improving the now narrow educational bases can there begin to be a solution to the long term trained manpower requirements generated by national economic development plans. Adequate systems of educational institutions are equally essential for political stability and social adjustment. They provide the best -- perhaps the only effective -- medium for acquainting and inculcating youth with national values and the ingredients of national esprit;   and with traditions, culture, ideals and aspirations. They provide the forum for development of codes of public morality and personal ethics, for defining responsibility to one's fellow man. They provide ever expanding reservoirs of raw material for tomorrow's leadership;   and the means of identifying this potential. Given wise guidance and competent administration, a vigorous and growing educational complex is the principal counter to Communist subversion. Beyond this, the United States would stand to gain additional benefits from an educational support program of some magnitude. It will be of enormous value to American prestige and goodwill to be identified with visible symbols of friendship and progress like schools, colleges, libraries and laboratories. There is no more meaningful way of breaking down the myth of imperialist exploitation, of indicating our interest in individual opportunity and social democracy.

          FINANCING
A price tag attaches to any such concept -- one must think in terms of several hundred million dollars over the next few years. However, it need not be primarily new money. The scheduled accumulations of soft currency in repayment of development loans promise a major source of financing. Congress has not indicated how such moneys will be employed;   substantial portions could be earmarked for educational purposes. Moreover, legislative authorization could provide for such use of portions of foreign currencies generated by future PL-480 activities. Thus dollars would be required only for those countries where the U.S. did not own substantial quantities of local currency;   and for teachers and equipment which could not be funded otherwise.

          ORGANIZATIONAL ARRANGEMENTS
There are numerous possibilities for administering an educational development program. A multi-lateral approach, through an independent mechanism or International Development Agency affiliate, has distinct psychological and economic advantages and might be more palatable to certain countries;   it would, however, be more ponderous and slow, less exploitable from the vantage of U.S. interest. A new Human Resources or Cultural Cooperation Agency, co-equal to ICA;   a Semi-public Foundation, linking the government and the universities;   a government Fund with relations to State and ICA paralleling those of the Export-Import Bank;   and a broadened ICA charter -- all have advantages and disadvantages.. The key to any organizational choice is that educational assistance must be closely and continuously integrated with the total country development plans. This tends to suggest that ICA should have the responsibility.

          MANAGEMENT
More important to the effectiveness of the envisaged program than Washington organizational arrangements is the work of the Country Team. The latter must be competent in garnering adequate information to be able to analyze the national educational problems;   in stimulating country development of comprehensive and balanced plans for expansion of facilities, for production of teachers and for determination of student population;   in encouraging devotion of maximum country resources to education;   and of insuring that request for assistance relate to priority needs and are consistent with overall plans. Equally, the Country Team has the responsibility of coordinating educational activities of private U.S. agencies and of influencing them, as appropriate, to direct emphasis to better support the key requirements.

      This stress on priorities, as the directrix of aid, is advised. The educational problem is of such vast proportions that U.S. input must be viewed as primarily catalytic. Our aim is to stimulate the greatest feasible local effort, deploying our limited resources to cover the critical needs which cannot be met through any other means. It will require sound judgment to determine the proper division of investment and energy between the education of personnel needed today and those required in the future. The bottlenecks may range from teachers colleges to equipment for vocational training centers to elementary textbooks. It may be that the greatest single contribution will be in the provision of training aids, adapted to the local scene. In any case, while recognizing that there are minimum thresholds of comfort and cheer for satisfactory student morale, our interest should be in the quality of instructional content rather than of physical plant.

      In the field of general education, as in the development of national leadership, the military establishments can play a significant role. To this area, we now turn.

VI -- NEW ROLES FOR THE MILITARY



In the past year, a number of informed and thoughtful observers have pointed out that the MAP supported military establishments throughout the less developed areas have a political and socio-economic potential which, if properly exploited, may far outweigh their contribution to the deterrence of direct military aggression. Part of the reasoning rests on the example of history, of which the role of the military under Kemal Ataturk is representative;   part on the record of recent months which has witnessed military accession to dominant position in the national affairs of several Asian states;   and part of the growing realization that armies are often the only cohesive and reliable non-communist instrument available to the fledgling nations.

      The thesis can be defended that the armies -- and their relatively small air and naval counterparts -- are the principal cold war weapon from the shores of the East Mediterranean to the 38th parallel. By the way of substantiation, one can point to command structures which provide for the rapid and effective dissemination of orders, information and propaganda to the lowest echelons;   to the patterns of unit deployments which cover the country from the capital to the most remote frontiers;   to the identification of officer and soldier with the village in which he was spawned;   and to the intangibles of the military mystique -- of variable strength, it is true -- built of pride in the tradition of arms, in contributions to the winning of national independence, in sense of duty to the State.

      It is not enough to charge armed forces with responsibility for the military aspects of deterrence;   they represent too great an investment in manpower and money to be restricted to such a limited mission. The real measure of their worthiness is found in the effectiveness of their contribution to the furtherance of national objectives, short of conflict. And the opportunities therefore are greatest in the less developed societies where the military occupy a pivotal position between government and populace. As one writer has phrased it, " . . . properly employed, the army can become an internal motor for economic growth and socio-political transformation."

          EDUCATION AND VOCATIONAL TRAINING
Aside from constituting a principal reservoir for leadership material, one of the military's major contributions to national growth is in the spread of education and skills. Literacy and a level of formal schooling are among the basic criteria of a fully effective soldier;   a military establishment adequate to its actual and contingent tasks must include a wide variety of technical and managerial competence. Both are relevant to economic development and social evolution. Given the narrowness of the national educational system, and the obstacles to expansion in the civilian sector, it is logical that training facilities and input, which are required, in any case, to meet military needs, should be exploited for the overall advantage of the country. The returns are proportionately greater when the armed forces are essentially peopled with conscripts as opposed to careerists.

The Three Rs
Practical literacy training for every soldier is a manageable goal, as the programs of the Turkish Armed Forces are demonstrating. It enhances the individual's usefulness in service;   it qualifies him for further education; and it equips him to disseminate his knowledge to his home community. As one source has suggested, the ripple effect of military instruction in the official language may be the best method of assuring that language's pre-eminence over local dialects.

Secondary Schooling
There is scope and need for the institution of off-duty courses akin to those which have long been a feature of the U.S. armed forces. The military organization facilitates identification of men of requisite capability and the exigencies of service provide a captive student population.

Vocational Training Centers
This area holds great promise both in reducing the burden on the U.S. of training low level personnel in U.S. facilities, and in meeting the demands of the civil economy. It is the essence of the "dual purpose" concept which has been elaborated in a separate Committee monograph. To the extent conflicts with the primary military mission are avoided and the civilian requirements are not exceeded, there is every justification for programming a student input which exceeds the military needs for artisans, administrative personnel and other commerce-applicable skills.

English Language Instruction
Facilities are not available in most MAP supported countries for providing English instruction for the minor numbers scheduled to be trained in the U.S. There are, however, cogent reasons for expanding knowledge of the English tongue:   to broaden the selection vase for overseas training;   to help the military in subsequent civilian pursuits involving foreign business contacts;   to promote closer orientation and communication between the United States and the recipient country.

      One cannot generalize the relative importance of these avenues, the extent to which they should be followed, or the methods. This can only be determined by specific country analysis. In some countries, encouragement and perhaps minor technical assistance to recipient governments may suffice. In others, direct military assistance may be most appropriate while, elsewhere, the answer may lie in ICA programs under MAAG supervision. What is universally needed is a coordinated survey, planning and execution at the Country Team level.

          STRENGTHENING OF INTERNAL SECURITY
The maintenance of internal security constitutes a major responsibility of these armed forces, whether assigned directly or not. Superior performance will provide the environment of confidence so necessary to national growth. But the dimensions of security are as much political and social as orthodox military and, in the former respect, understanding and positive action have been generally wanting.

Indoctrination
There must be comprehension of the complex nature of the subversive forces at plan and of the variegated methods of communist attack. Similarly, there must be full knowledge of the means of counterattack available to the nation and of the place of the military therein. Most of all, there must be invoked the motivation to combat these influences, whenever and wherever they surface. Much of this is dependent on wise and inspiring leadership but a well planned and conducted program of Troop Information is an essential corollary. It should be a permanent feature of military life, worked and re-worked to insure it deals with vital national problems, and in terms meaningful to the average soldier. Its importance can hardly be exaggerated for it fills a void which has no parallel in the radio-periodical replete West.

Action
If the military is properly led, indoctrinated and motivated, the activities open to it are numerous. In certain instances, a key requirement may be direct military action against armed dissidents;   consequently, appropriate elements of the army should be equipped and trained for unorthodox warfare. The main emphasis, however, will be in non-violent fields. An informed soldiery, widely based, is in an ideal position to transmit to the populace the thrust of its own indoctrination. By the example of its own discipline, confidence and deportment, the army provides assurance of physical protection and the identity of interest between protector and protected. Where direct military assistance to community projects is feasible -- on the model of noteworthy "civic actions" in the Philippines, Vietnam and Laos -- the army can demonstrably advance economic and social objectives.

          PROMOTION OF NATIONAL UNITY
Here is the ultimate test of the armed forces. Their role, in the countries under discussion, is unique. They are at once the guardians of the government and the guarantors that the government keeps faith with the aspirations of the nation. It is in their power to insure that the conduct of government is responsive to the people and that the people are responsive to the obligations of citizenship. In the discharge of these responsibilities, they must be prepared to assume the reins of government themselves. In either capacity -- pillar or ruling faction -- the Officer Corps, at least, must possess knowledge and aptitudes far beyond the military sphere.

      Successful discharge of this role depends on something more, however. It becomes the rallying point for energies and allegiance only to the extent that it personifies the spirit of the nation. Thus, to power and organization must be added adaptation to and visible reflection of national symbols, culture and values;   and unwavering integrity. Stimulation, through military assistance, of these qualities is perhaps more important than successive increments of combat effectiveness.

VII -- DEVELOPMENT OF VALUES



Up to this point, we have concentrated on defining the quantitative measurements of future programs in the human resources field. We have done this only to establish a framework within which expanded activities may be planned -- not from any mistaken belief that the exposure of increased numbers of individuals to formal instruction will, per se, lead to accelerated national pogress along paths desired by the United States. As manifested by earlier references, we are acutely conscious that the indispensable complements to learning are viable concepts to guide the application of that learning;   that a nation cannot progress without ethical codes to regulate the conduct of its citizens and institutions. We recognize that the test of leadership is less its competence in the organization of men than its fashioning and exemplication of the principles which inspire and drive the organization.

      The special pertinency of these matters to the Afro-Asian area is evident. There the political and social revolution has uprooted most of the symbols, beliefs and concepts to which men previously clung. The gap must and will be filled. The U.S. has a vital interest in the nature of the new symbols and concepts for they are critical to the attainment of our foreign policy objectives.

      It is one thing to subscribe to the fundamental importance or proper standards;   it is quite another to materially influence their formulation and their acceptance. Ths component of our programs for the training of foreign nationals has been indifferently pursued and has met with scant success. The reasons are readily identifiable. While we have embraced "the struggle for the minds of men" as a slogan, we have been inept at translating it into personalized terms and meaningful courses of political action. We have been ineffective in codifying and communicating the principles by which we live;   and we have entertained the misconception that our approval or our widely heralded social traits signified absorption of the political and moral precepts we are incapable of articulating. We are essentially non-political and empathy is not our forte. Most of all, we have invoked the myth of non-interference to cloak timidity, lack of assurance, sometimes want of moral courage when confronting issues which, admittedly, run close to national nerve centers and traditions. Yet nothing covert or insidious is involved. The tasks call for sophisticated handling but they are above board:   to inculcate standards consistent with, and designed to support, the aspirations of the newer nations of the East. Alternate, incompatible standards are already being proffered.

      There is no programming guidance which spells out the chapter and verse of this area of activity;   nor, in fact, can there ever be set rules to govern the development of motivation, integrity and moral principles. A few points are, of course, clear. The complexity and delicacy of the problem dictates a highly selective approach;   our aim is to build the current and future leadership that it may coalesce and build the nation. The intangible inputs to leadership can only be supplied by individuals, and particularly the membership of the Country Team, who have direct contact with the foreign elites.

      As we see it, the categories of contact are two. The first, transitory as to time but not impact, involves the American associates to form part of the environment of the leader's training in this country. The second, and more significant, is the advisor-advised relationship.

          U.S. TRAINING ENVIRONMENT
We have already alluded to the requirment for raising our sights with respect to the objectives of leadership training in the United States. Extra-curricular activities should be as carefully planned as the formal course of instruction, and the keynote should be something more than traditional American hopitality. Here is the opportunity for indoctrination in the dynamics of our society and for give-and-take discussions on the elements thereof adaptable and tranferable to the trainee's native land. There should be conscious efforts to demonstrate the identity among Constitution, government and governed;   our theorems of public service;   the responsibilities of the citizen to State and community;   the role and importance of our national symbols; and the other major factors which contribute to balance, stability, confidence and progress within the American society. Conversely, attention should focus on the pressing deficiencies and needs in the trainee's own society and understanding but forthright comment on what remedial actions are feasible.

      Exchanges of this nature cannot be haphazard;   their efficacy depends on thorough knowledge of the individual's background and passable skill in political dialetics. It will require real work and real imagination;   and adequate arrangements with, and full support by the military installaitons, universities, commercial establishments where the basic instruction takes place. Most important is the selection of the personnel to whom the indoctrination, conditioning and grooming activities are entrusted;   their interest, comprehension, knowledge of the trainee's country and preferably its language, tact, ability to reduce arguments to meaningful terms, and the example they set, are the final determinants of success or failure. Here is where the real costs of this training lie. The dollar expenditure in a year's course at the Army's Ft. Leavenworth or the Harvard Business School for eight Indonesian General Staff Colonels is no more than that required for pilot training of an Indonesian lieutenant. But the input of effort, imagination and motivaiton demanded of the hand picked Americans acting as these colonels' counselors cannot be priced.

      It should be noted in passing that the Defense Department has an infinitely better mechanism -- should it be willing to employ it - for the handling of these activities than do State or ICA.

          ROLE OF THE ADVISOR
In the last analysis, inculcation of the values which distinguish responsive and responsible leadership rests with the members of the Country Team. It is only at this level that effective communication between nations can take place;   that compatibility of United States and recipient country aims and objectives can be ascertained;   and that progress towards mutual objectives can be measured and assured.

      The starting point, as this paper has repeatedly underscored, is knowledge:   knowledge of the attitudes, aspirations and pulse of a selective cross-section of the populace, and of their national institutions;   knowedge of the background, views and factors which motivate the leadership elite;   knowledge of the extent to which community of interest among government, armed forces and people is lacking, and why;   and knowledge of the temper of the oposition and the nature of the weaknesses it exploits. There must, of course, be knowledge of the basic characteristics of local traditions, culture and religion;   of the well springs of national pride and superstitions;   and of prevailing social customs and practices. Extensive personal contacts with all strata of society can alone provide such knowledge. This is the first, and key, collective responsibility of the Country Team;   the routine of reports, inspections and administration must be subordinated thereto.

      Through understanding of the local scene and the identification of the major vulnerabilities inherent therein are essential bases for the reorientation and improvement of the national leadership. The others, and all-important, are the careful choice of the instrument -- the relationship between the U.S. representative and the native leaders with whom he is associated -- and the equally careful determination of the media to be utilized. We stress the necessity of meticulous attention to the selection process. As one uniquely successful military advisor has phrased it, we are dealing with "one of mankind's most sophisticated activities" and consummate wisdom and skill are required.

      An honest answer to the question, "how can an advisor strengthen the national leadership, and through that leadership the stability and growth of the nation must be that the potential is limited only by the individual's ingenuity and dedication, on the one hand, and the effectiveness of this rapport with key indigenous figures on the other. However, one can establish certain directional signs. Since we have pondered the military more deeply, models can be constructed in that area.[7] But the approach to the non-military leadership problem is generally similar.

Force of Example
It is basic that the advisor demonstrate, in his own conduct, the very ideals and traits he seeks to inculcate in others. Integrity and devotion to duty must be respected in his every action. While conforming to local customs, he must meticulously observe the same rules and spirit of military courtesy, vis-à-vis the local forces, as practiced in his own service. He must display, on all inspections and visits, the same concern for the health, welfare and comfort of the troops and for objective standards of military justice as accords with the best traditions of the U.S. forces. These things rub off. There is evidence that the example of MAAG officers has often resulted in the adoption of practices which have strengthened local military esprit and cohesion.

      The corollary to example is suggestion in matters which are vital to the morale and vigor of a military establishment. Practices which have a debilitating effect thereon, which reflect on the integrity of leaders, merit the attention of advisors. These may include the diversion of portions of troop pay and rations;   command acceptance of unsatisfactory living conditions;   partiality in bestowal of promotions and other rewards;   inequities in the system of military justice;   in short, any action which reflects abuse of prerogative or disregard for the paternalistic responsibilities of the Commander. The advisor must know the facts;   comprehend the background thereof; be forthright in discussions;   and, above all, have effective solutions. In certain areas, the answer may be straightforward. No special problems exist in encouraging counterparts to correct omissions as, for example, in frequency and thoroughness of inspections;   or display greater interest and energy in troop welfare programs;   greater energy in welfare activities. More imagination is required where reversal of precedent is involved. Convincing the Commander that the establishment of troop messes is, on its own merits, an excellent course of action may be the optimum -- and only -- answer to "squeeze" of subsistence allowances. Suggestion that the leader conduct a troop information program on the fundamentals of military justice may focus his attention of deficiencies which had previously gone unnoticed.

Development of Symbols
The traditions which sustain and uplift military forces are generally lacking in the newly emerged nations. They can, however, be found in the cultural heritage, refurbished and made meaningful. The U.S. Army helped build Jos Rizal into the Philippine national hero;   and did the same with respect to the legendary figures who today furnish inspiration for the armed forces of Vietnam. The U.S. MAAGs have the research facilities, the contacts and the troop information know-how to encourage and assist the Ministers of Defense in the development of symbols which reflect the highest ideals of the nation.

Formulation of a Military Creed
We have pointed out the unique responsibilities of the military forces -- one might almost say armies -- in the development of political stability and national unity. How well these responsibilities will be discharged depends upon the evolution of proper standards of service to guide the leaders;   and upon the latter's effectiveness in securing acceptance thereof by all ranks. To the extent that the advisor is attuned to the local environment, perceptive of the significant undercurrents, able to communicate his understanding and motives, and discreet in his approach, he can exercise appreciable influence on the formulation and expression of enduring principles. The latter include the relationship of the military instrument to the State and to the civil power;   professional and personal codes for military men;   the deeper meaning behind the observance of the forms of military courtesy;   and the constraints on the military in the emergency discharge of the functions of government. His influence in the dissemination of these creeds and concepts may be no less important. Forethought and imagination can assist in effective design and direction of the troop information and education programs to be conducted by commanders for the troops.

Increased Unity of Army and Populace
The achievement of internal security involves more than adequate physical protection. The populace must be confident of the motives of the protectors;   assured that the price of protection is not the deprivation of individual rights and privileges, that the military is indeed the servant of the State. The advisor must be able to suggest ways and means of promoting mutuality of objective and interest between the civil community and the military. Joint consultative committees are an excellent mechanism for the quick resolution of points of friction in Local community relations. If there are unit farms there should be no occasion for the commandeering of provisions. Military equipment and labor, temporarily idle, can expedite completion of village communal projects. Army medical facilities have the capacity to handle emergency cases, to help control the spread of disease or to eliminate critical sanitation problems.


The membership of the Country Team must be no less imaginative and persuasive in the non-military leadership sectors, where the search continues for meaningful forms and concepts of government, tuned to domestic and external realities. The increasing tendency, throughout Afro-Asia, to relinquish national responsibility to the military instrument is evidence of the non-viability of the Western forms and concepts which were originally embraced, deficiencies in local political leadership, or both. While the military deserves our full support in their discharge of their trusteeship responsibilities, it is in our best interest that the reins of government be returned to the civil authority as soon as one adequate to its tasks can be created. It is the duty of American field representatives to ascertain what has gone wrong and to proffer guidance and advice in the development of governmental and institutional structures and concepts of service, which will restore the confidence of the populace. Only thus can an enduring relationship be established among the governments, the military and the people themselves. The record is witness to the tremendous influence exerted by a few dedicated Americans over the policies and points of view of key decision-makers;   the value of their efforts, both to the country concerned and the United States, has been inestimable. It is regrettable, however, that these initiatives have been so limited in number and that they have sprung from the individual rather than governmental direction and impetus. Yet this is the real test of our ability to develop national leaders of integrity, objectivity and devotion to standards compatible with our own;   and, through these leaders, to insure the kind of stability and growth that constitutes the basis of our aid. Our selection, preparation and guidance of our field representatives must henceforth reflect this basic fact.

VIII -- REQUIREMENTS AND RECOMMENDATIONS



The foregoing discussion constitutes the arguments for and describes the broad objectives of efforts commensurate with the importance of the human side of development to the total mutual security program. Full attainment of these objectives may well be infeasible. Long term and complex undertakings are involved. Progress will be slow and not susceptible to precise measurement. The most difficult obstacles involve intangibles:   it will be easier to surmount fiscal and legislative problems than to condition and motivate American trainees for a series of responsibilities without precedent. We are convinced, however, that we cannot set our sights on any lower targets. For, we repeat, the achievement of political stability and economic growth throughout the less developed areas depends upon the competence of the national leadership, today and henceforward.

      Our proposals have dealt mainly with new emphasis, with the strengthening of the training framework and with qualitative improvements as to substance. These requirements do not translate into concrete recommendations. What follows, therefore, is a mixture of the general and specific.

          RE-ENUNCIATION OF POLICY
The first requirement is an attitudinal shift:   widespread recognition and acceptance of the essentially of greater efforts in the development of human resources;   and the gearing for such cohorts. While it must permeate both government and private sectors, the initiative lies with the Executive Branch. Existing policy must be reviewed and updated:   and there must be teeth. The sympathy and support of the Congress must be secured. Similarly, mechanisms must be found for eliciting the understanding of and greater cooperation from the American educational apparatus, the private foundations and the industrial and business world.

      We recommend that the National Security Council be seized with this matter and that it:

          ORGANIZATION AND MANAGEMENT
The conduct of leadership programs of the nature and size we have envisaged will require a considerably strengthened U.S. organizational framework and an increased capability to manage and coordinate the activities at the country level, in Washington and at the locales where training or orientation takes place.
Country Teams must assume a new order of responsibility as regards selection and programming of trainees, both with and independent of the local government. It has heavy coordination tasks in several arena. It needs comprehensive and up-to-date biographic registers and other data. All Teams will require a full time individual as central control point;   most will need some personnel augmentation.
Department of Defense's present training management arrangements are inadequate;   however, that organization has the capability to effect the necessary readjustments. Within ISA, the training element must be reinforced and moved from its present backwater to the status of a major division under the Director of the Military Assistance Program elsewhere proposed. The several Departments will need to create separate mechanisms for planning and monitoring the training and orientation visits of an expanded group of military leaders.

      The training staffs of the International Cooperation Administration will likewise need to be augmented. These are already overtaxed in handling current programs.
Department of State's responsibilities will likewise increase. Aside from expanded and more carefully tailored International Educational Exchange Service activities, it has a primary interest in the totality of programs designed to build the national leadership of foreign countries. It must therefore assume an active coordinating role not only with respect to the activities of MAP and ICA in this field, but also as regards those of the international agencies and private foundations and institutions.

      These requirements are clear;   their measure and the extent to which they are met will be proportional to the vigor of the new national approach. Recommendations in the premises would be redundant.

          LEGISLATIVE ACTION
Part of the "gearing up" involves both revisions of existing law, and further enactments.

      The underlying objectives of leadership programs apply with full force to all nations of the Free World. This aspect of military assistance is of such importance to the United States that it should proceed even where the country concerned is not eligible under the provisions of Section 142(a) of the Mutual Security Act;   likewise, it should not require the special Presidential determinations prescribed by Sections 105 and 141 of the same legislation.

      The bulk of the expenditures involved in the massive support of indigenous educational institutions would be in the currency of the recipient country. U.S. holdings of such currencies will increase markedly over the next two decades as a result of Development Loan Fund operations and expanded PL-480 activities;   and will far exceed predictable needs for support of U.S. missions.

      We recommend that the Executive Branch seek Congressional action to:

      Congress does not now get a full picture of the training and educational activities programmed annually in the non-military sector. The International Education Exchange Service programs are presented as an element of the overall Department of State operations. Moreover, the IEES must compete for funds within the context of what is essentially an administrative budget. We believe that the prospect of securing the additional resources required for expanded leadership programs, and coordination as well, would be enhanced by combining IEES and ICA proposals for the purposes of Congressional presentation. Such action would further emphasize the new accent on human resources development.

          BASIC PLANNING
As underscored in this paper, the nerve center of an expanded program is the Country Team. The needs, problems and exploitable opportunities vary widely from nation to nation;   and they can only be ascertained on the ground.

      The Washington agencies must activate new efforts by the revision of instructions, guidance, authorities and latitude. Detailed planning and preparations are the tasks of the field.

      It would be presumptuous to suggest the content of the planning directives to the Country Team. It would appear, however, that four separate areas should be covered and that there should be parallel instructions through State, ICA and DOD channels:

As to High-Level Manpower Development:

As to Support of Indigenous Educational Systems:

As to Exploiting Potential of Military Structure:

As to the Advisory Role:

          SUBSIDIARY PLANNING
Of the numerous supporting actions to be undertaken at the Washington level, those designed to improve the handling of the trainee are the most vital. They include:

          THE ULTIMATE REQUIREMENT
The basic determinant of our performance will necessarily be the quality of the American personnel who provide the training and counsel. Improvement of that quality must engage our major efforts, now and over the long term. There is much that can be done to orient our representatives more fully.

      The Executive Branch agencies need to maintain continuing contact with the research institutions evaluating the performance of our representatives abroad and reflect the constructive suggestions emanating therefrom in selection and preparation processes. But our basic deficiencies in linguistics, in political awareness, empathy and cross-cultural comprehension can only be restricted through a measurable reorientation of the American educational system. Contribution to the development of guidelines for such reorientation is an important responsibility of State, Defense and Health, Education and Welfare in close collaboration.

     


  1. to be expanded

     

  2. Among the most noteworthy are the several papers produced by the staff of the Presidential Task Group on High Level Human Resources for Economic Development, mentioned earlier;   and a thoughtful study by Mr. James Howe of ICA.

     

  3. ICA has recently initiated a week long Communications Seminar for selected trainees following completion of their course of instruction. The emphasis is on professional conduct at home and the communication of ideas.

     

  4. This thought, and certain others, reflect ideas advanced by the "Study on MAP in the Underdeveloped Areas" prepared for the Committee by the Foreign Policy Research Institute of the University of Pennsylvania, by Dr. George Liska;   and by Dr. Buy Pauker.

     

  5. Electronic Teaching Laboratories;   English courses in local educational systems;   bi-national centers; text books; and refresher training facilities in this country, utilized by trainees upon arrival.

     

  6. Technical assistance is, of course, available for provision of instructors, U.S. university contracts, etc.

     

  7. Much of what follows has been taken from a Confidential memorandum prepared by Colonel E. G. Lansdale, Office of Special Operations, Department of Defense.