State and Nonstate Associated Gangs: Credible "Midwives of New Social Orders"

STATE AND NONSTATE ASSOCIATED GANGS:

CREDIBLE "MIDWIVES OF NEW SOCIAL

ORDERS"

Max G. Manwaring

May 2009

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ISBN 1-58487-390-6

ii

FOREWORD

This monograph introduces a misunderstood
aspect of "wars among the people." The author
addresses the interesting subject of the multifaceted
nature and predominant role of gangs operating as
state and nonstate proxies in the modern unbalanced
global security environment. In every phase of
the process of compelling radical political change,
agitator-gangs and popular militias play significant
roles in helping their political patrons prepare to take
control of a targeted political-social entity. As a result,
gangs (pandas criminales or whatever they may be
called) are important components of a highly complex
political-psychological-military act — contemporary ir-
regular asymmetrical political war. In these terms, this
monograph is relevant to modern political discussions
regarding "new" socialism, populism and neo-
populism, and hegemonic state and nonstate challenges
to stronger opponents.

One can take an important step toward un-
derstanding these aspects of the political wars in our
midst by examining some selected cases. Accordingly,
this monograph examines a few premier cases that
illustrate how populists and neo-populists; the new
left, new socialists, or 21st century socialists; right-
wing-criminal nonstate actors; and other nonstate and
state actors use "agitators," gangs, "super gangs,"
and/ or popular militias for national, regional, or global
hegemonic purposes.

More specifically, this monograph examines
examples of contemporary populism and neo-
populism, 21st century socialism, and a nonstate actor
(al-Qaeda) seeking regional and global hegemony. They
are: first, paramilitary gang permutations in Colombia
that are contributing significantly to the erosion of the

in

Colombian state and its democratic institutions, and
implementing the anti-system objectives of their elite
neo-populist sponsors; second, Hugo Chavez's use of
the New Socialism and popular militias to facilitate
his populist Bolivarian dream of creating a mega-state
in Latin America; and, third, al-Qaeda's strategic and
hegemonic use of political-criminal gangs to coerce
substantive change in Spanish and other Western
European foreign and defense policy and governance.
Lessons derived from these cases demonstrate
how gangs might fit into a holistic effort to force
radical political-social-economic change, and illustrate
how traditional political-military objectives may be
achieved indirectly, rather than directly. These lessons
are significant beyond their own domestic political
context in that they are harbingers of many of the "wars
among the people" that have emerged out of the Cold
War, and are taking us kicking and screaming into
the 21st century. This timely monograph contributes
significantly to an understanding of the new kinds of
threats characteristic of a world in which instability
and irregular conflict are no longer on the margins of
global politics. For those responsible for making and
implementing national security policy in the United
States, the rest of the Western Hemisphere, Western
Europe, and elsewhere in the world, this analysis is
compelling. The Strategic Studies Institute is pleased
to offer this monograph as part of the growing interest
in global and regional security and stability.

DOUC^AS C. LOVELACE, JR.

Director

Strategic Studies Institute

IV

ABOUT THE AUTHOR

MAX G. MANWARING is a Professor of Military
Strategy in the Strategic Studies Institute (SSI) of the
U.S. Army War College (USAWC). He has held the
General Douglas MacArthur Chair of Research at
the USAWC, and is a retired U.S. Army colonel. He
has served in various civilian and military positions,
including the U.S. Southern Command, the Defense
Intelligence Agency, Dickinson College, and Memphis
University. Dr. Manwaring is the author and coauthor
of several articles, chapters, and books dealing with
Latin American security affairs, political-military
affairs, and insurgency and counterinsurgency. His
most recent book is Insurgency, Terrorism, and Crime:
Shadowsfrom thePastandPortentfortheFuture, University
of Oklahoma Press, 2008. His most recent article is
"Sovereignty under Siege: Gangs and Other Criminal
Organizations in Central America and Mexico," in
Air & Space Power Journal (in Spanish), forthcoming.
His most recent SSI monograph is A Contemporary
Challenge to State Sovereignty: Gangs and Other Illicit
Transnational Criminal Organizations in Central America,
El Salvador, Mexico, Jamaica, and Brazil. Dr. Manwaring
holds an MA. and a Ph.D. in Political Science from
the University of Illinois, and is a graduate of the U.S.
Army War College.

SUMMARY

This monograph introduces a poorly understood
aspect of "wars among the people." It deals with the
complex protean character and hegemonic role of gangs
operating as state and nonstate surrogates in the murky
shallows of the contemporary asymmetric and irregular
global security arena. This monograph, however, will
not address tattooed teenage brigands. Rather, it will
focus on ordinary-looking men and women who are
politically and commercially dexterous.

Like insurgencies and other unconventional
asymmetric irregular wars, there is no simple or
universal model upon which to base a response to the
gang phenomenon (gangs and their various possible
allies or supporters). Gangs come in different types,
with different motives, and with different modes of
action. Examples discussed include Venezuela's in-
stitutionalized "popular militias," Colombia's devolv-
ing paramilitary criminal or warrior bands (bandas
criminates), and al-Qaeda's loosely organized networks
of propaganda-agitator gangs operating in Spain and
elsewhere in Western Europe. The motives and actions
of these diverse groups are further complicated by their
evershifting alliances with insurgents, transnational
criminal organizations (TCOs), drug cartels, warlords,
governments that want to maintain a plausible denial
of aggressive action, and any other state or nonstate
actor that might require the services of a mercenary
gang organization or surrogate.

Lessons derived from these cases demonstrate how
gangs might fit into a holistic effort to compel radical
political-social change, and illustrate how traditional
political-military objectives maybe achieved indirectly,
rather than directly. These lessons are significant

beyond their own domestic political context in that
they are harbingers of many of the "wars among the
people" that have emerged out of the Cold War, and are
taking us kicking and screaming into the 21st century.

STATE AND NONSTATE ASSOCIATED GANGS:

CREDIBLE "MIDWIVES OF NEW SOCIAL

ORDERS"

INTRODUCTION

This monograph introduces a poorly understood
aspect of "wars among the people." 1 It deals with
the complex, protean character and hegemonic role
of gangs, agitators, armed propagandists, popular
militias, youth leagues, warrior bands, and other
mercenary organizations operating as state and
nonstate surrogates in the murky shallows of the con-
temporary asymmetric and irregular global security
arena. 2 This monograph, however, will not address
tattooed teenage brigands. Rather, it will focus on
ordinary-looking men and women who are politically
and commercially dexterous.

Like insurgencies and other unconventional
asymmetric irregular wars, there is no simple or
universal model upon which to base a response to the
gang phenomenon. Gangs come in different types, with
different motives, and with different modes of action.
Gangs also come with various possible allies and
supporters. Examples of state and nonstate associated
gangs include Venezuela's institutionalized "popular
militias," Colombia's devolving criminal or warrior
bands (bandas criminates), and al-Qai'da's loosely
organized networks of propaganda-agitator gangs that
operate in Spain and other parts of Western Europe.
The motives and actions of these diverse groups are
further complicated by their evershifting alliances
with insurgents, transnational criminal organizations
(TCOs), drug cartels, warlords, governments that

want to maintain plausible denial of aggressive illicit
action, and any other state or nonstate actor that might
require the services of a mercenary gang organization
or a surrogate. 3

The internal and external hegemonic use of gangs
goes back at least to the 16th century and Machiavelli,
who said, "Some have made themselves masters of
[city-states] by holding private correspondence with,
and corrupting one party of the inhabitants. They
have used several methods to do this." 4 Machiavelli
must have thought that everyone clearly understood
what he was saying, because he did not elaborate.
As an example, everyone knew that political leaders,
regardless of title, employed "unofficial henchmen"
they could put to use in a contingency. It was V.
I. Lenin in the early 20th century, however, who
articulated the strategic asymmetric-irregular-political
vision within which so many contemporary nonstate
and nation-state actors now operate. 5 Lenin argued
that anyone wishing to compel an adversary to accede
to his will, "must create [organize, train, and employ]
a body of experienced agitators." 6 In that connection,
anybody and everybody are free to study his ideas,
adapt his ideas, and implement them for their own
purposes. 7 Lenin's purpose was straightforward: If
these instruments of statecraft (agitators; that is, the
gang phenomenon) succeed in helping to tear apart
the fabric upon which a targeted society rests, then the
instability and violence they create can serve as the
"midwife of a new social order." 8

In these terms, Lenin's classic strategic vision is
relevant to modern political discussions regarding
"new" socialism, populism, and neo-populism, as
well as hegemonic challenges to stronger opponents.
Lenin's Democratic-Socialism was the dictatorship

of the proletariat — only a Leninist Social-Democracy
can represent the democratic will of a people (the
proletarian or working class). His methodology was,
therefore, populist and neo-populist. He was a populist
in the sense of being anti-liberal democracy. He was
neo-populist in terms of being anti-bourgeois-capitalist
political-economic system. 9 He was hegemonic in
terms of the Leninist dictum that it can only be with the
"defensive" extinction of all opposition that a new social
order will come about, as well as true sovereignty. 10
And only when Leninist surrogates are in place all
around the world will Social-Democracy be safe and
peace possible. 11 In any event and in every phase of
the revolutionary process, agitator-gangs (popular
militias) play significant roles in helping their political
patrons prepare to take control of a targeted political-
social entity. As a result, state and nonstate supported
and associated gangs are important components of a
highly complex political-psychological-military act —
contemporary irregular asymmetric political war. 12

One can take an important step toward
understanding the political wars in our midst by
examining a few selected cases. Accordingly, this
monograph examines three contemporary variations
on the Leninist agitator-gang theme. They are, first,
Hugo Chavez's use of the "New Socialism" to facilitate
his neo-populist Bolivarian dream of creating a mega-
state in Latin America that would be liberated from
U.S. political and economic domination; second,
gang permutations in Colombia that are contributing
significantly to the erosion of the Colombian state and
its democratic institutions and implementing the anti-
system objectives of their elite neo-populist sponsors;
and, third, al-Qai'da's sophisticated, strategic, and
hegemonic use of political-criminal gangs to coerce

substantive change in Western European foreign policy
and governance.

Lessons derived from these cases demonstrate how
gangs might fit into a holistic state or nonstate actor
effort to compel radical political-social change and
illustrate how traditional political-military objectives
may be achieved indirectly rather than directly. These
lessons are significant beyond their own domestic
political context. They are harbingers of many of the
wars among the people that have emerged from the
Cold War and are taking us kicking and screaming
into the 21st century. 13 These cases are also significant
beyond their uniqueness. The common political
objective in each case is to coerce radical change in
targeted political-economic-social systems.

LESSONS FROM VENEZUELA

President Chavez's Program to Fulfill His
"Bolivarian Dream."

Since his election as President of Venezuela in
1998, Hugo Chavez has encouraged and continues to
encourage his Venezuelan and other Latin American
followers to pursue a populist and neo-populist/ anti-
democratic and anti-system/ hegemonic defensive
agenda that will liberate Latin America from the
economic dependency and political imperialism of the
North American "Colossus" (the United States). Chavez
argues that his program for 21st century socialism (The
New Socialism) is the only process through which
the Bolivarian dream of a Latin American liberation
movement can be achieved. 14 This is not the rhetoric
of a deranged dreamer. It is, significantly, the rhetoric
of an individual who is performing the traditional and

universal Leninist function of providing a strategic
vision and plan for gaining political power. And now,
Chavez is providing militant reformers, disillusioned
revolutionaries, and submerged nomenklaturas all over
the world with a relatively orthodox Leninist model
for the conduct and implementation of a regional,
defensive, and total "war of all the people" (people's
war). 15

Context.

President Chavez's populist Bolivarian dream is
based on four enablers. The first is the New Socialism.
With that concept in place, one can envision building
a new, neo-populist, anti-system social democracy,
beginning with Venezuela and extending eventually
to the whole of Latin America. In turn, that concept
dictates a new system of power. Chavez calls this
system "Direct Democracy." Its main tenets dictate
that:

• The new political authority must be a leader
who communicates directly with the people;

• Elections, plebiscites, Congress, and the
courts will provide formal democracy and
international legitimacy but will have no real
role in governance or the economy. Governance
and the economy are the responsibility of the
leader;

• The state, through the leader, will own or control
the major means of production and distribution;
and,

• The national and regional political-economic
integration function will be performed by the
leader by means of his financial, material, and
political-military support to popular militias
and "people's movements." 16

The second enabler centers on social programs
designed to provide tangible benefits to the masses
of Venezuelans who were generally neglected by
previous governments, and to strengthen the leader's
internal power base. 17

The third enabler focuses on communications with
the intent of enabling the media (radio, television,
newspapers, and magazines) to create a mass consen-
sus. President Chavez has used the media skillfully
to communicate his ideas, develop positive public
opinion, and generate electoral successes. In connection
with the Bolivarian dream, Chavez has directed
communications to audiences all over Latin America.
And, not surprisingly, the Chavez government has
shut down some elements of Venezuela's opposition
media to ensure the "irreversibility of the process for
establishing socialism for the 21st century." 18

The fourth enabler involves the reorganization of
the security institutions of the country. In addition to
the traditional armed forces, Chavez has created and
funded the following independent forces:

• A National Police Force (Guardia National);

• A 1.5 million-person military reserve
organization;

• A paramilitary (popular militia) called
Bolivarian Liberation Front (Frente Bolivariano
de Liberation)) and,

• Another paramilitary militia, "Army of the
People in Arms" (Ejercito del Pueblo en Armas).

All these institutions are outside the traditional
control of the regular armed forces, and each
organization is responsible directly to the leader
(President Chavez). This institutional separation is

intended to ensure that no one military or paramilitary
organization can control another, but the centralization
of these institutions guarantees the leader absolute
control of security and social harmony in Venezuela. 19
What President Chavez has achieved by
restructuring the Venezuelan government and its
democratic institutions, improving the physical well-
being of many poor Venezuelans, and verbalizing these
successes on television and in the press is the formation
of a unity of political-psychological-military effort and
the development of a large, popular, internal, and
external base of support. Moreover, the reorganization
of the government and its security apparatus provides
for presidential control of the political, economic,
social, informational, and security instruments of state
power that are intended to "deepen and extend" the
bases of the regional liberation effort— and to enable
the implementation of 4th Generation (asymmetric)
Warfare (4GW). 20 Once all these enablers function
together, they will destroy traditional Venezuelan and
Latin American democracy and the old Venezuelan
and Latin American political-economic system. 21 The
old democracy and the old system will be replaced by
a new kind of democracy and a new type of political
system— socialism for the 21st century. This takes
us to Chavez's Program for the Liberation of Latin
America.

The Program for the Liberation of Latin America.

Applying the strategic principles of a new, realistic,
theoretical model for action will achieve 21st century
socialism. The model is based on the integration of
all the instruments of state power under the direction
of the leader and is what President Chavez calls 4th

Generation War, Asymmetric War, or a War of All the
People. The most salient characteristics of this kind of
war include the following five notions:

• The struggle is predominantly political-
psychological, not military — although there is
an important military or paramilitary role in the
process;

• The conflict is lengthy and evolves through
three, four, or more stages;

• The war is fought between belligerents with
asymmetrical capabilities and asymmetrical
responsibilities to their constituencies —
giving the leader of a "direct democracy" an
organizational advantage over the leadership of
representative democracies;

• The struggle will have transnational dimensions
and implications; and,

• The war will not be limited in purpose. It will be
total in that it gives the winner absolute power
to control or replace an existing government. 22

In this connection, President Chavez is planning
for a long-term, three-stage, multiphase program for
gaining power (regional hegemony). Though Chavez's
three stages use different terminology, they are similar
to those of Lenin: (1) organization, (2) development and
use of coercive political and limited military power,
and (3) the capture of a targeted government. 23

A minimum of six phases elaborate that paradigm
and outline the role of the paramilitary popular militias.
General Gustavo Reyes Rangel Briceno articulated the
phases, that might well have been written by Lenin,
when the General accepted the office of Minister
of Defense for the National Reserve and National
Mobilization on July 18, 2007:

Organize to propagate Latin American
nationalism, train a cadre of professionals
(propagandists and agitators) for leadership
duties and political-military combat, and create
selected environments of chaos;
Create a Popular (political) Front out of the
"debourgeoised" middle classes and other like-
minded individuals, who will work together to
disestablish opposed societies and defend the
new social democracy;

Foment regional conflicts. This would involve
covert, gradual, and preparatory political-
psychological-military activities in developing
and nurturing popular support. As the number
of recruits grows and the number of activities
increases, the fomentation of regional conflicts
would also involve the establishment and
defense of "liberated zones;"
Plan overt and direct intimidation activities,
including popular actions (such as
demonstrations, strikes, civic violence, personal
violence, maiming, and murder) against feudal,
capitalistic, militaristic opponents and against
yanqui imperialism. The intent is to debilitate
target states and weaken enemy military
command and control facilities;
Increase covert and overt political-psycholog-
ical-economic-military actions directed at
developing local popular militias to fight in
their own zones, provincial or district militias
to fight in their particular areas, and a larger
military organization to fight in all parts of the
targeted country with the cooperation of local
and district militias; and,

• Directly, but gradually, confront a demoralized
enemy military force and bring about its desired
collapse — or, simply, invade a targeted country
with the objective of imposing appropriate New
Socialist governance. 24

Until the last moment in the last and decisive phase
of the Latin American liberation process— when the
targeted government is about to collapse — every action
is preparatory work and not expected to provoke great
concern from the enemy or its bourgeois allies. 25 Thus,
by staying under his opponents' "threshold of concern,"
Chavez expects to "put his enemies to sleep — to later
wake up dead." 26 It is at the point of enemy collapse
and the radical imposition of new Socialist governance
that the people will begin to enjoy the benefits of love,
happiness, peace, and well-being. 27

At present, however, Chavez is only in the beginning
phases of his first preparatory Organizational Stage
of the Program for the Liberation of Latin America.
The culmination of stage one is still a long time away.
Stages two and three must be several years down
the revolutionary path. At the strategic level, then,
Chavez appears to be consolidating his base position
in Venezuela, taking a relatively low revolutionary
profile, and waiting for a propitious time to begin the
expansion of the revolution on a supra-national Latin
American scale. He will likely continue to focus his
primary attack on the legitimacy of the U.S. economic
and political domination of the Americas and on
any other possible rival. And he will likely continue
to conduct various rhetorical and political-military
attacks on adversaries; continue to cultivate diverse
allies in Latin America, the Middle East, and Asia;
and to engage his allies and his popular militias in

10

propaganda and agitation "seeding operations" for the
creation of a receptive political climate throughout the
Western Hemisphere. 28

Responses.

One school of thought in Latin America — expressed
privately, if not publicly, to a norteamericano (North
American) — firmly supports Chavez and his supra-
national Bolivarian dream. Those who oppose Chavez
are against his "lack of realism," are ambivalent, or
just do not care. The Chavez supporters are organizing
and preparing for the future. The opposition waits,
watches, and debates. 29

The United States has tended to ignore the larger
problem of responsible democratic governance and
concentrate on the war on drugs. If there is another
North American concern, it would be the problem
of possible nuclear proliferation and the associated
Venezuelan-Iranian alliance. Countries such as
Bolivia, Ecuador, and Nicaragua appear to support the
Bolivarian dream. Others that might be affected by the
destabilizing consequences of Chavez's neo-populist
political-psychological-economic efforts throughout
the Western Hemisphere have not wanted to deal
with the problem. 30 Apparently, very few individuals
or governments will acknowledge Chavez's goal as a
clearly defined, universally recognized threat in the
Americas until large numbers of uniformed troops
of one sovereign state directly invade the sovereign
territory of another. 31

Key Points and Lessons.

• Although seemingly over ambitious, Chavez's
concept of a regional super insurgency con-

11

ducted primarily by popular militias appears to
be in accord with Lenin's approach to the con-
duct of irregular asymmetrical political war.
This notion is quietly opening a new era in which
much of the world is ripe for those who wish
to coerce political-social change and change
history, avenge grievances, find security in new
structures, and/ or protect old ways.
Asymmetric war may be accomplished by those
familiar with the indirect approach to conflict,
using the power of dreams and the importance
of public opinion, along with a multidimensional
flexibility that goes well beyond conventional
forms. The consequent interactions among
all these factors in asymmetric war make it
impossible for the military dimension to act as
the traditionally dominant actor.
The threat, thus, is not a conventional enemy
military force or the debilitating instability
generated by an asymmetric aggressor. Rather,
at base, the threat is the inability or unwillingness
of the government in office to take responsible
and legitimate measures to exercise effective
sovereignty and to provide security and well-
being for all of its citizens. That governmental
failure to protect the people is what gives
an oppositionist aggressor the opening and
justification for its existence and action.
As a corollary, the ultimate threat is either state
failure, or the violent imposition of a radical
socio-economic-political restructuring of the
state and its governance in accordance with the
values (good, bad, or nonexistent) of the victor.
Targeted regimes and their international allies
that fail to understand Chavez and his political-

12

psychological intentions and respond only
with military or police power to his rhetoric,
his phantom people's militias, and his other
irregular and asymmetrical methods are not
likely to be successful in their attempts to
counter his Bolivarian dream.

These lessons are all too relevant to the "new"
political wars of the 21st century. General Sir Rupert
Smith warns us that, "War as cognitively known to
most noncombatants, war as a battle in a field between
men and machinery, war as a massive deciding event
in a dispute in international affairs; such war no longer
exists." 32

NEW LESSONS FROM COLOMBIA

Gangs Devolving from the Paramilitary
Demobilization Program.

Over the past 40 to 50 years, Colombia's potential,
its democracy, and its effective sovereignty have
been slowly deteriorating as the consequences of
three ongoing, simultaneous, and interrelated wars
involving three major violent, internal nonstate groups.
They are the Revolutionary Armed Forces of Colombia
(FARC), the paramilitary/ vigilante AUC (The United
Self-Defense Groups of Colombia), and the illegal
transnational drug industry. This unholy trinity (or
nexus) of politically motivated and terroristic TCOs
and nonstate actors is perpetrating a level of human
horror, violence, criminality, corruption, and internal
instability that is threatening Colombia's survival as
an organized democratic nation-state. Additionally,
neo-populist (anti-system) activities of some of that

13

country's elites further complicate the conflict picture.
These elites have never supported the idea of strong
national institutions and the development of a viable
nation-state. The issue is, simply, that the power to
control terroristic insurgents, paramilitary groups, and
criminal drug traffickers is also the power to control
the virtually autonomous elites. 33

At the same time, a new dynamic is being
introduced into the ongoing multidimensional conflict
in Colombia. Several types of illegal nonstate groups
(gangs) are devolving out of President Alvaro Uribe's
AUC demobilization and reintegration program. An
even greater potential threat to security and stability
coming from the emergence of these new bandas
criminates (criminal gangs) is thought to be the possible
formal establishment of a federation of splinter AUC
groups, existing drug trafficking organizations,
currently faltering FARC units, and the much smaller
National Liberation Army (ELN) insurgent group. Such
a federation could become a more-than-significant
terrorist-criminal-insurgent nonstate actor in the
Colombian malaise. 34

Context: A New Gang Dimension in the Colombian
Conflict.

A new force inserting itself into the Colombian
conflict is a large number of bandas criminates that have
come into being as a result of the formal demobilization
of the AUC, and the disintegration of some FARC
units. These gangs are altering the configuration of the
insurgency and the illegal drug industry, as well as
complicating the already crowded conflict arena. That
said, and because of the generally autonomous nature of
the AUC and its new creations and the lack of certainty

14

regarding the FARC, it is hard to understand and
predict what the gangs may or may not be doing — and
what they may or may not mean. Despite the general
lack of certainty regarding the new gangs, however,
there are a few things that are becoming clearer as the
bandas criminates become more involved in the general
conflict.

First, we know that all the newly devolved gangs
are more autonomous, less well understood, and more
unpredictable than their parent organizations. We also
know that the ad hoc organization of the new gangs
makes it difficult to know who they are, their numbers,
why they do what they do, and their linkages with
other organizations, legal and illegal. Additionally, we
know that:

• As of the end of 2008, there are an estimated 100
or more independent bandas criminates operating
actively over at least 20 percent of the Colombian
national territory. Membership estimates range
from 3,000 to over 10,000.

• Like their parent, the new AUC (paramilitary)
gangs tend to be organized horizontally with no
predetermined structure. The specific structure
of a given gang is determined by its leadership,
the tasks it must perform, and the requirements
of the locale within which it operates.

• AUC Organizational groups are established
through a process of franchisement.

• Parent AUC and FARC organizations generally
allow subordinate groups considerable latitude
in the ways and means chosen to accomplish a
given task.

• Particularly "dirty" operations are often
conducted by "hired guns" from among
aspirants, sympathizers, or unemployed

15

"nobodies," rather than regular members of an
AUC or FARC gang.

• AUC and FARC bandas criminates conduct four
basic operations:

1. Direct and sometimes lead specific military
operations (e.g., "social cleansing") against
selected "uncooperative" groups;

2. Perform the business-as-usual armed
propaganda functions prescribed by V.I.
Lenin for propaganda-agitator gangs; 35

3. Direct and sometimes lead relatively
sophisticated political and psychological
actions; and,

4. Collect, hold, and allocate money, weapons,
and other resources. 36

Second, the use of terror, fear, and other "barbaric"
methods (mutilation kidnapping, murder, rape,
pillage) is considered to be a force multiplier and a
rational psychological means of controlling a larger
population. More specifically, these methods allow a
small force to accomplish the following:

• Convince the people of a given area that the
AUC paramilitaries are the real power in the
country;

• Exert authority over a population — even a
population supposedly under the control of a
government or another nonstate actor;

• Persuade or coerce public opinion, electoral
conduct, and leader decision and policymaking;
and,

• Hold off a much larger force and fight another
actor at the same time. 37

16

Third, the relationship of the new gangs to
elements of the Colombian government is becoming
more evident. Evidence of AUC association with the
government and some of its major institutions — and
resultant support — can be seen (if not proved in a court
of law) in two different instances:

• Ties between paramilitary groups and Colom-
bian legislators can be seen in more than 40 cur-
rent and former congressmen being charged
with one type or another of collaboration
with the AUC. It has been and continues to be
asserted that "Congress is awash in AUC cash"
to ensure that paramilitary influence remains
strong in the highest levels of government. 38

• From the time of the AUC's organization, the
Colombian military has been thought to have
close, if informal, ties to the paramilitaries, as
in two recent examples: Army Chief General
Mario Montoya was implicated in collaboration
charges initiated by the attorney general, and
Intelligence Chief Jorge Noguera was dismissed
as a result of similar charges. Additionally,
specific documents are now coming to light that
indicate close ties between the Army and the
AUC. 39

Fourth, several types of gangs are devolving from
the AUC demobilization program. The common beliefs
regarding motives and ties back to the AUC are that
they are all involved in some sort of criminal activity,
and that they are controlled and led by hard-core
paramilitary leaders who have not demobilized. Two
groups — The New Generation Organization (ONG)
and the Black Eagles — operate in several Colombian
departments (provinces) and provide good examples

17

of the new gang phenomenon. A third set of groups,
associated with the old AUC Northern Bloc, is also
worth consideration.

The ONG is an example of a new group that has
continued acting much as the old AUC did. ONG
in the southern Department of Narino is fighting
the insurgents. ONG is also working to control (for
its own purposes) drug crops, processing facilities,
and trafficking routes into Ecuador and the Pacific
Ocean. Additionally, ONG has formed an ad hoc
alliance with an armed wing of a drug cartel called the
Rasrojos. Reportedly, the purpose of that alliance is to
provide protection from other gangs, drug cartels, and
insurgents operating in the region. 40

In the north of Colombia — La Guajira, Norte de
Santander, and Santa Marta, for example — newly
emerging gangs are involved in lucrative smuggling
opportunities for commodities such as drugs, weapons,
and oil. They compete with other illegal groups and
the Colombian state for access to smuggling routes and
oil pipelines that lead to key ports on the Caribbean
Sea. Thus, the Black Eagles and their TCO and other
gang allies are not operating as the old-style AUC.
They are not deliberately targeting the FARC and ELN
insurgents. They are operating in ad hoc alliances with
various drug, criminal, and insurgent groups. More
often than not, they tend to fight any other group that
might be in control of valuable commodities, strategic
corridors, and seaports. Thus, the Black Eagles appear
to have inserted themselves forcefully into an existing
transnational criminal network. In that connection,
and like some other Latin American gangs, some Black
Eagle gangs are engaged in extortion and racketeering
and have been known to rent themselves out as
mercenary soldiers and sicarios (hired killers). 41

18

Elsewhere along the Caribbean coast of Colombia
and in the slums of some of the major cities, new
gangs are literally going from house-to-house
and neighborhood-to-neighborhood conducting
"social cleansing" operations against FARC and
ELN insurgents. At the same time, these operations
contribute to creation of the political space necessary
to allow the gangs to achieve their commercial (self-
enrichment) objectives. These new bandas criminates are
thought to be connected with the old AUC Northern
Bloc (BN) umbrella organization. That organization was
composed of a large network of gangs that operated
independently until their co-option or subordination
to the AUC prior to 2002. The basic structure of the BN
is still intact and is reportedly trying to reassert control
of areas where they formerly operated. 42

Fifth, it would appear that the new Colombian gangs
are more than bandas criminates. They are reshaping the
narco-terrorist-insurgent-criminal world in Colombia,
and they are exacerbating threats already eroding
Colombian democracy and the Colombian state. In
these terms, the new AUC and FARC gangs are doing
what gangs all over the world do best. As they evolve:

• They generate more and more socio-economic-
political instability and violence over wider and
wider sections of the political map;

• They coercively neutralize, control, depose,
or replace existing governmental service and
security institutions;

• They create autonomous enclaves that
are sometimes called criminal free-states,
sovereignty free-states, para-states, or
"ungoverned territories;" and,

• Thus, they change values in a given society to
those of their criminal or ideological leaders,

19

and act as Leninist "midwives" that begin the
process of radically changing the society and
the state. 43

Finally, even though there is evidence that the
FARC is militarily weaker now than it has been at
any time in the past 30 years, it has organized an
active international support network (the Coordinadora
Continental Bolivariana or CCB) and a secret political
party structure (the Clandestine Colombian
Communist Party or PC-3). This is a classic Leninist
political response to a military setback, and has serious
implications for the ongoing internal war in Colombia.
This response portends a move away from the direct
confrontation of the armed forces through guerrilla war,
toward the subtle continuation of the revolutionary
struggle against the state through international and
internal political-psychological-military coercion. As a
consequence, the gang phenomenon takes on new roles
and preeminent importance. It is expected that some
FARC units will emerge as variations on the existing
bandas criminates, and that rumors of FARC's demise
are greatly exaggerated. 44

Where the Unholy Trinity Leads.

Today's threats from the unholy trinity at work
in Colombia and the rest of the Western Hemisphere
come in many forms and in a matrix of different kinds
of challenges, varying in scope and scale. If they
have a single feature in common, however, they are
systematic, well-calculated attempts to coerce radical
political change. In that connection, we shall explore
briefly two of the many consequences the narco-in-
surgent-paramilitary union has generated. First, the
erosion of Colombian democracy will be examined;

20

then, the erosion of the state will be considered. From
there, we shall go to the problem of state failure,
the ultimate threat, and to the internal and external
responses to that threat.

The Erosion of Colombian Democracy. In Colombia,
we observe important paradoxes. Elections are held
on a regular basis, but leaders, candidates, and elected
politicians are also regularly assassinated. Literally
hundreds of governmental officials, considered
unacceptable by the nexus (unholy trinity), have been
assassinated following their election. Additionally,
intimidation, direct threats, and the use of relatively
minor violence on a person, and his or her family,
continue to play an important role prior to elections.
And, as a corollary, it is important to note that although
the media is free from state censorship, journalists and
academicians who make their anti-narco-insurgent-
paramilitary opinions known through the press — or
too publicly— are systematically assassinated. 45

Consequently, it is hard to credit Colombian
elections as democratic or free. Neither competition
nor participation in elections can be complete in an
environment where armed and unscrupulous nonstate
actors compete violently with the government to con-
trol the government— before and after elections. More-
over, it is hard to consider Colombia as a democratic
state as long as elected leaders are subject to control or
vetoes imposed by vicious nonstate actors. As a conse-
quence, Ambassador David Jordan argues that Co-
lombia is an "anocratic" democracy. That is, Colombia
is a state that has the procedural features of democracy
but retains the features of an autocracy where the
ruling elites face no scrutiny or accountability. 46 In any
event, the intimidating and persuasive actions of the
narco-insurgent-paramilitary alliance in the electoral

21

processes have pernicious effects on Colombian
democracy and tend to erode the ability of the state to
carry out its legitimizing functions.

The Partial Collapse of the State. The Colombian state
has undergone severe erosion on two general levels.
First, despite government claims to the contrary, the
state's presence and authority is questionable over
large geographical portions of the country. Second, the
idea of the partial collapse of the state is closely related
to the nonphysical deterioration of democracy. Jordan
argues that corruption is key in this regard and is a
prime mover toward "narco-socialism." 47

In the first instance, the notion of partial collapse
of the state refers to the fact that there is an absence
or only partial presence of state institutions in many
of the rural areas and poorer urban parts of the
country. Also, even in those areas that are not under
the direct control of narco, insurgent, or paramilitary
organizations, institutions responsible for protecting
citizens — notably the police and judiciary — have been
coerced to the point where they find it very difficult and
dangerous to carry out their basic functions. Indicators
of this problem can be seen in three sets of facts. First,
the murder rate in Colombia is among the highest in
the world. Second, and perhaps most important, the
proportion of homicides that end with a conviction
is less than 4 percent. 48 Third, many of Colombia's
worst criminal warlords and drug traffickers are
extradited to the United States for trial, conviction, and
incarceration. 49 These indicators of impunity strongly
confirm that the state is not adequately exercising its
social-contractual and constitutional-legal obligations
to provide individual and collective security within
the national territory.

22

In the second instance, nonphysical erosion of the
state centers on the widespread, deeply entrenched
issue of corruption. As one example, in 1993 and 1994,
the U.S. Government alluded to the fact that former
President Ernesto Samper had received money from
narcotics traffickers. Later, in 1996, based on that
information, the United States withdrew Mr. Samper's
visa and decertified Colombia for not cooperating in
combating illegal drug trafficking. Subsequently, the
Colombian Congress absolved Samper of all drug
charges by a vote of 111 to 43. 50 In that connection,
and not surprisingly, another indicator of government
corruption at the highest levels is found in the Co-
lombian Congress. The Senate — in a convoluted legal
parliamentary maneuver— decriminalized the issue of
"illicit enrichment" by making it a misdemeanor that
could be prosecuted only after the commission of a
felony. 51 Clearly, the reality of corruption at any level
of government favoring the illegal drug industry, the
paramilitaries, or other criminal elements militates
against responsible governance and the public well-
being. And, in these terms, the reality of corruption
brings into question the reality of Colombian democ-
racy and the reality of effective state sovereignty.

In short, the gang challenge to Colombian national
security, stability, and sovereignty and the attempt to
neutralize, control, or depose incumbent governmental
institutions takes us to the strategic level threat. In
this context, crime, violence, and instability are only
symptoms of the threat. The ultimate threat is either
state failure or the violent imposition of a radical
socio-economic-political restructuring of the state and
its governance in accordance with criminal values.
In either case, gangs contribute to the evolutionary
state failure process by which the state loses the

23

capacity and/ or the will to perform its fundamental
governance, service, and security functions. Over time,
the weaknesses inherent in its inability to perform the
business of the state in various parts of the country are
likely to lead to the eventual erosion of state sovereignty
(authority) and legitimacy. In the end, the state does
not control its national territory or the people in it. 52
In that connection, some close observers of the gang
phenomenon assert that the coerced change toward
criminal values in targeted societies is leading to a
"New Dark Age." 53

Responses to the Armed Nonstate Threats.

Colombia, the United States, and other countries
that might ultimately be affected by the destabilizing
consequences of the narco-insurgent-paramilitary
alliance in Colombia have tended to deal with the
problem in a piecemeal and ad hoc fashion or even
ignore it. Significantly, in Colombia, this has been
done over the years within alternating environments
of cooperation and mutual enmity between the
civil government and the armed forces. 54 With the
promulgation of the socio-political-military Plan
Colombia in 2000, however, and subsequent policies
such as Democratic Security in 2002, and various plans
(Libertad Uno) in 2003 and Plan Patriota in 2004-05,
there is now the basis of a coherent political-military
project— but still not the kind of holistic "game plan"
advocated by former U.S. Ambassador to Colombia
Myles Frechette. 55

Frechette calls for a holistic, long-term national
capability-building "game plan" that would include
taxing the upper elements of society that currently pay
few or no taxes. 56 Additionally, there are no apparent

24

quests for improved governmental legitimacy; no
serious efforts to implement a viable unity of civil-
military effort; no coordinated, long-term plan to isolate
the armed protagonists from their various sources of
support; and no political commitment to the country or
to allies to "stay the course of the war." Additionally,
the intelligence and information wars within the war
leave much to be desired. 57

In all, it appears that Colombia is "muddling
through" and, after nearly 50 years, either continuing
to adapt to the situation or continuing to hope for the
problem to go away.

Key Points and Lessons.

• Colombia faces not one but a potent combination
of three different armed threats to its democracy
and its being. The unholy "Hobbesian trinity"
of illegal drug traffickers, insurgents, and
paramilitary gang organizations has created a
situation in which life is indeed "nasty, brutish,
and short."

• Each set of violent nonstate actors that
constitute the loose trinity has its own
specific — and different— motivation, but the
common denominator is the political objective
of effectively controlling and radically changing
the Colombian government and state as we
know them.

• The narco-insurgent-paramilitary alliance
utilizes a mix of aggressive, widespread, and
violent political-psychological, economic-
commercial, and military-terrorist strategies
and tactics primarily to control human and
physical terrain in Colombia and other countries

25

where it operates. The generalized result of the
intimidating and destabilizing activities of this
alliance of violent nonstate actors is a steadily
increasing level of criminal manpower, wealth,
and power that many nation-states of the world
can only envy.

At the same time, that unholy trinity represents
a triple threat to the effective sovereignty of
the Colombian state and to its hemispheric
neighbors. It undermines the vital institutional
pillars of regime legitimacy and stability,
challenges the central governance of countries
affected, and actually exercises effective political
authority (sovereignty) over portions of physical
and human national terrain.
Despite some concern regarding the fact that
FARC insurgent leadership may not live to
see the fruition of its Leninist-Maoist national
revolutionary efforts, the current leadership
appears to be unconcerned with speeding up or
energizing its deliberate plan of action to seize
the power of the state. 58

In that connection, it appears that the major
protagonists think of time being on their side
and that their existing informal marriage of
convenience is evolving satisfactorily into a
more formal and lucrative criminal federation.
Accordingly, that criminal federation may
eventually be able to "buy its way to [power in
Colombia]." 59

Alternatively, there is evidence that FARC is
moving from a theoretically quick military
approach for taking control of the Colombian
state to a broader and slower political-
psychological-military approach. The above

26

commercial or political possibilities need not be
mutually exclusive. In either or both instances,
the Colombian state is likely to be severely
tested.
• The Colombian and U.S. responses to the narco-
insurgent-paramilitary nexus have been ad
hoc, piecemeal, and without a holistic strategic
civil-military campaign plan. As a consequence,
Colombia and its U.S. ally have not addressed the
real war that is taking place in the hemisphere.
That war continues to fester and grow toward
the ultimate political objective of radically
changing the Colombian state.

The Colombian insurgency and its associated TCO
and gang phenomena have been evolving for at least
40 to 50 years. In that time, violence and destruction
have varied like a sine curve from acute to tolerable.
However, just because a situation is "tolerable" does
not mean the problem has gone away or should be
ignored. Sun Tzu reminds us: "For there has never
been a protracted war from which a country has
benefited." 60

LESSONS FROM AL-QAI'DA'S ELEVATION
OF NONSTATE IRREGULAR ASYMMETRIC
WARFARE ONTO THE GLOBAL ARENA:
DEFENSIVE JIHAD IN WESTERN EUROPE

The Organizational Context.

Al-Qai'da has succeeded in doing what no
other nonstate actor or terrorist organization has
previously accomplished. It has succeeded in elevating
asymmetric, insurgent warfare onto the global arena. 61

27

Far from being ingenuous, apolitical, and unique, al-
Qai'da acts in accordance with a political logic that is
a continuation of politics by indirect, irregular, and
violent means. Al-Qai'da and its leadership do not
pretend to reform an unjust order or redress perceived
grievances. The intent is to destroy perceived Western
regional and global enemies and replace them as the
world hegemonic power. Thus, al-Qai'da's asymmetric
global challenge is not abstract; it is real. 62 The point
from which to begin to understand the threat and
respond effectively to it is the organizational context.

A popular term being used to describe al-Qai'da's
organizational structure is "Leaderless Jihad." 63 That
term accurately characterizes the concept of no formal
chain of command and further illustrates the fact that
killing or neutralizing al-Qai'da leadership only causes
a basic cell to lie dormant for a season, then it renews
itself automatically. 64 The term, however, is deceptive.
Leaderless jihad implies that there is no central
directing authority, no focus of purpose and effort,
no coordination of movement and action, and no real
threat. Al-Qai'da, in fact, is anything but leaderless or
benign. Osama bin Laden organized al-Qai'da very
carefully to take advantage of human and physical
terrain and used multiple and modifiable methods to
compel enemies to serve his purposes, and comply with
his will. 65 In these terms, al-Qai'da can and does elevate
nonstate asymmetric insurgent warfare into the global
security arena and engages in hegemonic actions— just
as if it were a nation-state attempting to force political
change in other nation-states. 66 Yet, al-Qai'da does not
rely on highly structured organization, large numbers
of military forces, or costly weaponry.

Al-Qai'da leadership understands that anyone
wishing to compel an adversary to accede to its will

28

must organize and employ a relatively small body of
propagandists and agitators (cells or gangs). The pur-
pose is clear. These irregular, asymmetric instruments
of statecraft are integral parts of the revolutionary
process, and their purpose is "to expedite the fall of
the common enemy." 67 That enemy is the globally
hegemonic "West." This unacknowledged Leninist
dictum is illustrated in the general application of
al-Qai'da's global strategy, and, as more specific
examples, in Western Europe. 68 The use of gangs as
components of strategy and tactics, however, is not
unique to al-Qai'da or confined to Europe. 69 There are
armed nonstate groups all over the world that find
their perceived notions of the al-Qai'da model for
asymmetric global challenge to be salient. 70 The key role
of the al-Qai'da propaganda-agitator gangs operating
in Western Europe, however, can be understood
more completely within the context of the general
organizational structure.

The Leader and His Organizational Vision.

Experience and an expanding understanding of
al-Qai'da in Western Europe indicates that Osama
bin Laden represents a militant, revolutionary, and
energetic commitment to a long-term approach to
return to Islamic governance, social purpose, and
tradition. He has further identified the primary
objective of the movement as power. 71 Power is
absolutely necessary in order to implement the political,
religious, economic, and social changes explicit and
implicit in the idea of a return to Islamic governance
of Muslim peoples and the resurrection of the Islamic
Caliphate of the year 711 A.D. 72 Power is generated by
an enlightened, well-educated, well-motivated, and

29

disciplined organization that can plan and implement
an effective program for gaining control of societies
and states. Power is maintained and enhanced as the
organization acts as a "virtual state" within a state (the
nonterritorial Islamic state) and replaces the artificial
and illegitimate (apostate) governments that impose
their rule on contemporary Muslim societies. 73 Thus, al-
Qai'da members — from those in the highest positions
to new recruits — have had to pledge their lives to the
achievement of this vision. And, as in the time of the
empire, they all must pledge their allegiance to the
leader. 74

The Base Organization. Osama bin Laden's first
and continuing concern must center on organization.
The preparatory activities necessary to achieve his
long-term vision are classical Leninist and Maoist. He
created a motivated and enlightened cadre, a political
party-type infrastructure, a small loosely organized
guerrilla network, and a support mechanism for the
entire organization. 75 Organizational vitality, breadth,
and depth also provide bases for local, regional, and
global effectiveness. Thus, the base organization, not
operations, is considered key to al-Qai'da's success.
Importantly, al-Qai'da means "the base."

Generally, and at first glance, al-Qai'da appears to be
structured much like a classical hierarchical movement
along rigid, close-knit, secretive lines in a pyramid
structure. A closer examination of that multi-tiered
structure, however, indicates a substantial corporate
enterprise designed especially for conducting large and
small-scale business operations and terrorist activities
all around the globe. As a result, this organization looks
much like transnational criminal gang organizations in
the Americas that can quickly and flexibly respond to
any kind of changing situation. Thus, it is more helpful

30

to look at al-Qai'da's structure arranged in horizontal
concentric circles, rather than as a traditional vertical
pyramid. 76

The Inner Circle of the horizontal al-Qai'da
organization is composed of a small Council (shura)
of Elders and a few hundred carefully selected,
talented members (coordinators) who operate the
functional structures considered essential to long-term
effectiveness and durability — regardless of who serves
as the leader. There are at least six of these functional
organizations within the base organization: military,
funding, procurement, manpower and logistics,
training and personnel services, and communications
and propaganda. 77 This inner circle provides strategic
and operational-level guidance and support to its
horizontal network of compartmentalized cells and
allied (franchised) associations (groups or networks).
This structure also allows relatively rapid shifting of
operational control horizontally rather than through
a slow vertical chain of command. This organization
can, then, respond to an unexpected problem or to a
promising opportunity in a timely manner. 78

The Second Ring of the concentric organizational
circle consists of an unknown number of "holy
warriors" who are veterans of the campaigns against
the Russians in Afghanistan and subsequent efforts
in Iraq, the Middle East, and North Africa. They are
proven and trustworthy (committed) and provide
leadership and expertise to the worldwide, multi-
dimensional network.

Al-Qai'da's Third Ring consists of thousands of
Islamic militants (aspirants and sympathizers) from
around the globe. These individuals make up a
loose alliance of political parties and groups, as well
as transnational criminal, insurgent, and terrorist

31

organizations and cells that can be called on virtually
any time for aid, sanctuary, and personnel. (A caution-
ary note should be added here: That is, leaders of many
Islamic communities have consistently condemned the
terrorist activities of al-Qai'da, and do not want to be
associated with it or Osama bin Laden. Thus, al-Qai'da
is not a universally accepted organization within the
various Islamic communities around the globe, and
should not be perceived as representing other Islamic
political points of view. The Islamic "sympathizers"
in the Third Ring of the Base Organization are only a
small portion of the entire Islamic community).

The Outer Ring of the al-Qai'da organizational
structure consists of more amorphous groups of
Muslims and non-Muslims (outsiders) in 90 countries
around the world. They generally support Osama bin
Laden' s view of the West as the primary enemy of
Islam and of humanity. 79 Accordingly, active support
for al-Qai'da comes from a broad range of social classes,
professions, and various Muslim and non-Muslim
groups. A highly respected al-Qai'da expert, Michael
Scheuer, asserts that the next generation of membership
will be more diverse and larger, more professional, less
operationally visible, and more adept at using modern
communications and military tools. 80

One example of the quality and talent of the people
who are working in bin Laden' s contemporary base
structure is his world-class media organization. This
apparatus is already very sophisticated, flexible,
and omnipresent in virtually every country in the
world. Al-Qai'da's media people produce daily
combat reports, videos of attacks on enemy targets,
interviews with various al-Qai'da and other Islamic
leaders, and a steady flow of news bulletins to feed
24/7 satellite television networks around the globe.

32

Thus, the al-Qai'da media are providing Muslim and
other communities around the world with its version
of the war in Iraq and Afghanistan— and elsewhere —
professionally, reliably, and in real time. 81 If Scheuer is
right, the next generationcan only be more sophisticated
and formidable than the present one, and can only
enhance al-Qai'da's position as a global hegemonic
power in an environment in which public opinion,
correct and incorrect perceptions, and deep religious
and political beliefs dominate the human terrain. 82
The resultant radicalization of parts of the Islamic and
anti-Western world — particularly young people — has
already generated general socio-political problems, as
well as specific immigration, law-enforcement, foreign
policy, and national security issues in virtually all of
Western Europe. 83

Al-Qai'da's Regional and Global Challenge.

Al-Qai'da documents and statements envisage
what Osama bin Laden calls a "defensive Jihad" that
calls for three different general types of war — military,
economic, and cultural-moral — divided into four
stages and with well-defined strategic, operational,
and tactical-level objectives. 84 The intent is to organize
indirect and direct violence to sow panic and instability
in a society; to destabilize, weaken, and/ or depose
perceived enemies; and to ultimately bring about
radical political change. This kind of violence "shades
on occasion into guerrilla warfare and even a substitute
for war between states." 85

This concept also allows military, political, and
other facets of an al-Qai'da insurgency to be conducted
in tandem. The different types of war and their
associated stages are sometimes overlapping and may

33

be altered. Stages may be added or reduced in scope
as various milestones are met or not met. Moreover,
objectives and the types of military and non-military
ways and means chosen to achieve them, may be
adjusted as a given situation dictates. Importantly,
this kind of ambiguous war intentionally blurs the
distinction between and among crime, terrorism, and
conventional war — and makes it substantially more
difficult to counter. Flexibility and deliberate ambiguity
in organizational planning and implementation of
the program to achieve power is, then, an important
consideration when analyzing the al-Qai'da model. 86

The dominating characteristic of a given war is
defined as military, economic, or cultural-moral. Within
the context of "combinations" or "collective activity,"
it is important to understand that there is a difference
between the "dominant" sphere and the "whole."
There is a dynamic relationship between a dominant
type of general war (e.g., military, economic, or moral)
and the supporting elements that make up the whole.
As an example, military war is always supported by
media (information) war and a combination of other
types of war that might include— but are not limited
to — psychological war, financial war, trade war, cyber-
network war, or diplomatic war. 87

It must also be understood that, at base, the
intent of every type of Islamic war, with its dynamic
combinations of multi-dimensional efforts, is to
support directly one or more of the five main political
objectives in al-Qai'da's currently stated intermediate
end state. They are to:

• Eject the United States from the Middle East;

• Open the path to destroy the apostate Arab
regimes in the area, and Israel;

• Preserve regional energy resources for Islamic
benefit;

34

• Enhance Muslim unity; and,

• Install Sharia rule throughout the region— one
geographical place or one part of the human
terrain at a time. 88

The intermediate end game, however, must always
be seen in the light of al-Qai'da's long-term political
objectives. They are to:

• Take down all governments that are considered
apostate or corrupt;

• Recover all territories that were, at one time
or another after 711 A.D., Islamic (e.g., Spain
and Portugal; the south of France and Italy; the
islands of the Mediterranean, and some Balkan
states);

• Attain regional and global hegemony; and,

• Reestablish the Caliphate. 89

To be sure, there are those in the global Muslim
community who do not hold these extreme views. 90 But,
al-Qai'da does hold these views, and to date is one of
the best organized and most successful revolutionary
(insurgent) movements in Islam. Currently, al-Qai'da
is also the only Islamic Revolutionary Movement that
is globally oriented; that is, not limited in scope and
geography.

The Roles, Activities, and Some Results

of Propaganda and Agitation in the al-Qai'da

Program.

At first glance, al-Qai'da's asymmetric global
challenge might appear to be ad hoc, piecemeal,
and without reason. Thus, a closer look at al-Qai'da
operations in Spain and some of the rest of Western

35

Europe is instructive. After reviewing the basic facts
of the brutal terrorist bombing of the Atocha train
station in Madrid in March 2004, one can see that this
seemingly random and senseless criminal act had
specific objectives. Thus, one can also see the subtle
implementation of al-Qai'da's intermediate and long-
term political-psychological-hegemonic objectives.

An Example of Gang Agitation: The Madrid Bombing,
March 2004.

Before and shortly after March 11, 2004, al-Qai'da's
asymmetric global challenge appeared to many to be
ad hoc and senseless. Nevertheless, a closer look at
the ruthless terroristic violence in Spain in March 2004
reveals some interesting and important lessons. After
reviewing the basic facts of the bombing of the Atocha
train station in Madrid, one can see that this seemingly
random terrorist act had specific purposes. At the same
time, one can observe more precisely the roles of small
agitator-gangs within the conceptual framework of the
First, Second, and Third Stages of al-Qai'da's Islamic
War. Then, one can see the results of these actions in
terms of al-Qai'da's intermediate strategic objectives.

On March 11, 2004, 10 rucksacks packed with explo-
sives were detonated in four commuter trains at the
Madrid's Atocha train station. That terrorist act killed
191 innocent and unsuspecting people and seriously
injured over 1,800 more. The act was considered to
be the most violent in Western Europe since the 1988
bombing of Pan American Flight 103 over Lockerbie,
Scotland, that killed 270 people. Despite its length, the
1,470-page official summary of the investigation of the
Madrid bombings provided very little information.
It indicated that 29 men were involved in that attack.
Those 29 individuals included 15 Moroccans, nine

36

Spaniards, one Syrian with Spanish citizenship, one
Syrian, one Algerian, one Egyptian, and one Lebanese.
The summary also indicated that some of the
individuals were members of a radical political group
active in North Africa and that al-Qai'da exercised
only an inspirational influence. Moreover, the official
summary indicated that these terrorists might not have
learned their bomb-making skills from al-Qai'da, but
from the Internet. 91

Subsequent British and other investigations
of terrorist attacks in Western Europe provided
considerable additional information regarding
the March 2004 bombings in Madrid, and the 29-
man organization that was responsible for that act.
Those investigations indicated more than a casual
relationship with al-Qai'da. Four of the bombers were
al-Qai'da "veterans" from the second ring of the base
organization who provided leadership and expertise
for the operation. Most of the nonveterans involved
in the planning and implementation of the attack
were operating as part of the Third Ring of the Base
Organization and were involved in criminal gang
activities such as drugs-for-weapons exchanges, false
documentation (passports, other personalidentification,
and credit card fraud), and jewel and precious metals
theft. Additionally, the nonveteran members of the
gang were involved in disseminating propaganda and
recruiting Spanish Muslim fighters to join Iraqi and
other al-Qai' da-sponsored insurgencies. The intent
of these day-to-day activities was to help support and
fund regional and global al-Qai'da Jihadi operations. 92
In this instance, the normal criminal activities of the 25-
man nonveteran member group were interrupted by
the addition of four veterans in order to enable them
to take-on the mission of bombing the Madrid train

37

station. 93 This kind of information leads to conclusions
to the effect that:

• The small cellular organization that actually
planned and executed the Madrid bombings
was acting in support of al-Qai'da's Second and
Third Stages of contemporary Islamic war;

• The committed al-Qai'da "veterans" who
provided leadership and expertise for the
operation came out of the second-level (ring) of
the base organization;

• Prior to the planning and implementation of
the bombing, the 25 nonveteran members of the
bombing group had been acting very much like
criminal gangs operating anywhere — up to a
point; 94

• It was not until the bombing of the Atocha station
in Madrid that this particular gang transitioned
from an implicit political agenda (i.e., recruiting
personnel and criminally generating financial
support for al-Qai'da's political-military
operations in the Middle East, North Africa, and
elsewhere) to an explicit political challenge to
the Spanish state and the global community. It
was at that point, then, that these "delinquents"
became "militants";

• The purpose of the action was not to achieve
any military objective, and it was not a random
act. Rather, the bombing was deliberately
intended to generate strategic-level political-
psychological results; nevertheless,

• The militancy continued to be treated as a social
and law enforcement issue. 95

38

Another Strategic Disclosure: The Establishment
of Small al-Qai'da Support Centers in Western
Europe.

The long, but almost irrelevant, official legal
Spanish summary of the bloody Madrid bombing left
more than a few people wondering why and how:
"A massacre of that size could be carried out by just
a few delinquents?" 96 The answers to those questions
did not begin to become clear until after similar attacks
in London, England, over a year later, in July 2005.
The British and, later, other similar investigations of
terrorist attacks in Western Europe provided several
frustrating and sobering findings.

Among those findings, it was discovered that there
are several active al-Qai'da cells operating throughout
Europe. 97 The intent is to establish support centers from
which to conduct Second and Third Stage Islamic War. 98
At the same time, it is obvious — and Britain is a good
example — that these support organizations are now
composed of radicalized second and third generation
("home-grown") Islamic cadres who have been trained
and given experience in al-Qai' da-associated facilities
and conflict ranging from North Africa, through Iraq,
and to South East Asia (Afghanistan and Pakistan). The
result is a rapidly expanding "home-grown" terrorist
threat. 99

After the March 2004 bombings in Madrid, Spanish
police began finding large numbers of Islamic militants
in the major cities of the country. In that connection,
police began to verify the latent Spanish fear that their
country — called Al-Andalus by Moslems — is a priority
al-Qai'da target. That is, there is a strongly perceived
notion to the effect that there is an Islamic obsession

39

to reincorporate the richest part of the old Caliphate
into Dar al-Islam (the land of Islam). In support of that
Spanish fear, al-Qai'da argues that the Spanish and
Portuguese reconquest (711-1492 A.D.) of Al-Andalus
(Spain and Portugal) marked the initiation of Western
European colonialism against Islam. 100 Additionally,
recent statements by an al-Qai'da leader, Abdel Makik
Droukedel also known as Abu Musab Abdel Wudud,
in a "Message to our nation in the Islamic Maghreb,"
(to include Spain) further validate that Spanish threat
perception. 101

It appears that the main activities of the Islamic
"militants" (no longer, "delinquents") in Spain center
on: recruiting fighters to join the Iraqi, Afghani, and
other al-Qai'da insurgencies, expanding the capability
to support operational missions, and influencing
governance within the various Islamic communities.
These militants are also found to be engaged in other
supporting operations for the global Jihad, in terms
of money, equipment, drugs, and arms. Police also
claim to have foiled a number of operational missions
(attacks) that are allegedly directed at internal Spanish
infrastructure.

Importantly, the large majority of the Islamic
militants apprehended in Spain since 2004 are North
African immigrants — of which over 500,000 are
Moroccan. As a consequence, the support cell mission
of radicalizing Muslims living in Spain appears to
constitute an enormous political-social challenge for
now and the future. 102 Yet, the Spanish government
appears to concentrate its national security efforts on the
Basque and Catalan separatist movements. 103 To date,
the only effort aimed at legal and illegal immigrants
is a government plan to provide up to two year's
worth (about 18,000 euros) of up-front unemployment

40

benefits in return for giving up Spanish work and
residence papers, and returning to their countries of
origin. 104

In the United Kingdom (UK) — as well as France
and Italy— we see similar patterns to those in Spain.
Moving to another aspect of the situation, then, it
has been discovered that al-Qai'da terrorist activity
is escalating. In a rare public statement, the Director-
General of the British security service known as MI5,
has made it clear that " [t]here is a steady increase in the
terrorist threat to the UK . . .;" that "al-Qai' da-related
terrorism is real, here, deadly, and enduring . . . ;" that
"[s]ome 200 groupings or networks, totaling more that
1,600 identified individuals are actively engaged in
plotting and facilitating terrorist acts here or overseas
. . . ;" and, again, that "[plots in the UK] often have
links back to al-Qai'da in Pakistan . . ." 105 As a result,
the United Kingdom, as of mid-2008, is the only
country in Western Europe that is beginning to think
and act in terms of al-Qai'da and its radicalization of
British Muslim youth being a serious national security
problem. 106

Some key points and lessons to emphasize regarding
al-Qai'da's establishment of small support centers in
Spain and other countries in Western Europe are:

• Al-Qai'da's primary concern in pursuing its
strategic objectives centers on small, loosely
organized, hard-to-eradicate networks;

• The intent is to generate reliable infrastructure
and franchise organizations that can begin to
attack symbols of power and open new fronts
(stages or war) virtually anywhere in the world.
This deliberate and slow process is intended
to facilitate the creation and expansion of the
desired Caliphate by one piece of human and/
or physical terrain at a time;

41

• Spain is perceived by many Spaniards to be a
priority target for enhanced second and third
stage Islamic War; yet, except in the UK;

• Al-Qai'da activities tend to be treated as social
and law enforcement problems. 107

What the Propaganda- Agitation Effort Has
Demonstrated.

Since March 2004, al-Qai'da has demonstrated
that it can skillfully apply irregular asymmetric war
techniques to modern politic al war, and has done s o with
impunity. In that connection, al-Qai'da demonstrated
that its terroristic actions were executed in a way that
made virtually any kind of Spanish, Western, or U.S.
military response impossible. After over 3 years of
investigation and the trial, the Spanish court acquitted
seven of the 29 men accused of the 2004 Madrid train
bombings and found 21 individuals guilty. (Note:
One of the accused had been previously convicted on
charges of illegal transport of explosives. Also note
that four of the 29 accused committed suicide 3 days
after the bombing.) Two Moroccans and a Spaniard
were sentenced to 42,924 years in prison. Nobody else
in the gang was sentenced to more than 23 years in
prison. And, importantly, the men accused of planning
and carrying out the attack were not convicted for the
train bombing. They were found guilty of belonging
to a terrorist group, or for illegally transporting
explosives. 108

The Madrid attack also sent several messages to the
Spanish people, the rest of Europe, the United States,
and Muslim communities around the globe. The
various messages went something like this:

42

• It is going to be very costly to continue to
support the United States in its Global War on
Terror (GWOT) and in Iraq;

• Countries not cooperating fully with al-Qai'da
might expect to be future targets;

• Understand what can be done with a minimum
of manpower and expense;

• Al-Qai'da demonstrated that the Madrid,
London, and other subsequent bombings
were deliberately executed in a way that made
virtually any kind of Western or U.S. military
response impossible; and,

• Al-Qai'da stood up against the United States
and its allies — and succeeded. 109

As a result, the publicity disseminated throughout
the Muslim world has been credited with generating
new sources of funding, new places for training and
sanctuary, new recruits to the al-Qai'da ranks, and
additional legitimacy. 110

Additional Strategic-Level Results of the Madrid
Bombing.

Even though the information gathered throughout
Western Europe from the investigations and trials
connected with the Madrid bombing was treated
cautiously and without alarm, the results achieved
by the small 29-man cadre (gang) were dramatic and
significant. The sheer magnitude and shock of the attack
changed Spanish public opinion and the outcome of
the parliamentary elections that were held just 3 days
later. In those elections, the relatively conservative, pro-
United States government of Prime Minister Jose Maria
Aznar was surprisingly and decisively defeated. That

43

defeat came at the hands of the anti-U.S./ anti-Iraq War
leader of the socialists, Jose Luis Rodriguez Zapatero.
Prior to those elections, the Spanish government had
been a strong supporter of the United States, U.S. policy
regarding the GWOT, and the Iraq War. Shortly after
the elections, Spain's 1,300 troops were withdrawn
from Iraq, and Spain ceased to be a strong U.S. ally
within the global political and security arenas. 111

These political-psychological consequences
advance the intermediate and long-term objectives
of political war that bin Laden and al-Qai'da have set
forth. The most relevant of those objectives, in this
context, are intended to erode popular support for the
War on Terror among the populations of American
allies, and gradually isolate the United States from its
allies. 112 And, all that was accomplished by a small 29-
man agitator-gang with little impunity, and at a cost of
only $80,000. 113

SUMMARY AND CONCLUSIONS

Al-Qai'da propaganda, the bombing of Madrid's
Atocha train station in 2004, and the establishment of
support centers in Western Europe have significantly
opened the path to:

• Weaken the United States in the Middle East
and Western Europe; and in turn,

• Weaken the position of the apostate Arab
regimes in the area, and Israel;

• Enhance radical Muslim morale and unity
throughout the world; and,

• Demonstrate al-Qai'da's capability to conduct
Second and Third Stage (the Long War) conflict
in Western Europe.

44

Where Al-Qai'da Operations Lead: The Long War.

Osama bin Laden and al-Qai'da have abruptly and
violently contradicted the traditional ideas that war
is the purview of the nation-state, and that nonstate
and irregular actors ways and means of conducting
contemporary war are simply aberrations. 114 Al-Qai'da
also demonstrated that limited conventional motives
for conducting war can be dramatically expanded
to strive to achieve the Clausewitzian admonition to
"dare to win all" — the complete political overthrow
of a government or another symbol of power —
"[instead of merely] using superior strength to filch
some province." 115 Thus, al-Qai'da represents a
militant, revolutionary, and energetic commitment to
a long-term approach to the renewal of an extremist
interpretation of Islamic governance, social purpose,
and tradition. That is, the renewal of the 8th century
Caliphate. 116 That, in turn, is a substantive challenge to
Spanish and other States' sovereignty.

Al-Qai'da's Challenge to State Sovereignty.

Those disciples of Osama bin Laden who dream
of a return to the glories of the 8th-15th centuries
understand that such a dream cannot be fulfilled
overnight. And these dreamers know that this kind
of ultimate political objective cannot be achieved by
blitzkrieg or "shock-and-awe" tactics that can deliver
a final victory in a few weeks. They realize that the
objective of a new Islamic society and Caliphate will
only be achieved as a result of a deliberate and lengthy
struggle that generates the destabilization and slow
destruction of targeted states. This confrontation
includes no compromise or other options. This is a

45

conflict with an absolute and unalterable objective, in
which there is nothing to negotiate or compromise on.
This unlimited objective, then, requires a long and total

war. 117

The "Long War," however, is more than a lengthy
war. It begins with a challenge to Western political
and military leaders to adapt to some new realities of
contemporary conflict. It ends with another challenge
to Western leaders to contemplate the notion of
interim "virtual states" within traditional sovereign
nation-states (nonterritorial Islamic communities) and
a type of war that includes no place for compromise or
other options short of the achievement of the ultimate
political objective — the renewal of the Caliphate. As
a consequence, the Long War is total war in terms of
scope and geography, as well as time. 118

Osama bin Laden does not appear to be particularly
interested in taking de facto control of any given state.
And, he is not sending conventional military forces
across national borders. He is interested, however,
in influencing governments to allow his organization
maximum freedom of movement and action within
and between national territories. He is also interested
in influencing and controlling the Muslim "human
terrain" now living within various national territories
in Spain, other parts of Western Europe, and elsewhere.
Rather than trying to control or depose a government in
a major stroke (coup or golpe) or a Maoist revolutionary
war, as some insurgents have done, al-Qai'da and its
various networks intend to slowly and imperceptibly
take control of specific pieces of human terrain within
the geographical-political territory of targeted states.
This is accomplished one individual, one street, one
neighborhood, or one Mosque at a time.

Thus, whether al-Qai'da's pursuit of freedom of
movement and action is specifically criminal, terrorist,

46

ideological, or religious is irrelevant. The putative
objective is to neutralize, influence, and control people
and communities to begin the long-term process to
renew the Caliphate. This final objective defines the
insurgency, a serious political agenda and a messianic
determination to radically change entire political-
economic-social systems and their values. 119

Key Points and Lessons.

In light of the new world security environment that
has been initiated by al-Qai'da, there is ample reason
for worldwide concern. The results of that effort stress
the following:

• Al-Qai'da has succeeded in doing what no
other nonstate or terrorist organization has
previously accomplished. It has demonstrated
that a nonstate actor can effectively challenge
a traditional nation-state, and the symbols of
power in the global system, without conventional
organization, weaponry, and manpower.

• Experience, and an expanding understanding of
al-Qai'da activities in Western Europe, indicates
that Osama bin Laden represents a militant,
revolutionary, and energetic commitment
to a long-term approach to return to Islamic
governance, social purpose, and tradition.

• The premise is that ultimate success in renewing
the 8th century Caliphate can be achieved as a
result of the careful application of a complex
multidimensional paradigm that begins with
political-psychological war innovations,
combined with the ruthless application of
terror.

47

That paradigm is enhanced by the addition of
informational (media), economic, cultural, and
other components of power that give relative
advantage to al-Qai'da over an opponent that
uses a unidimensional military-police approach
to address the long-term conflict.
These various dimensions of contemporary
conflict are further combined with military
and nonmilitary, lethal and nonlethal, and
direct and indirect methods of attacking an
enemy. Together, these combinations generate
a powerful irregular asymmetric substitute for
conventional war.

Osama bin Laden's first and continuing concern,
however, centers on organization. The activities
necessary to achieve his ultimate political
vision include the creation of a motivated
and enlightened cadre, a loosely organized
propaganda-agitator (guerrilla) network, and
small multiform support mechanisms for the
entire organization. The intent is to gradually
widen the global battlefield to the point where
al-Qai'da becomes less relevant, and the Islamic
Caliphate begins to take control of the long-term
struggle (the Long War).

The Long War, however, is more than a lengthy
war. It begins with a challenge to Western
political and military leaders to adapt to new
realities (e.g., a new concept of enemy and
new centers of gravity), and ends with another
challenge to Western leaders to contemplate
the notion of interim "virtual states" (i.e.,
nonterritorial Islamic communities) located
within traditional sovereign nation-states.

48

• Al-Qai'da's assault on state sovereignty
represents a triple threat —

— to isolate Islamic communities from the rest of
a host-nation's society, and begin to replace
traditional state authority with Sharia law;

— to transform Islamic communities into
"virtual states" within the host state, without
a centralized bureaucracy and no official
armed forces for a host nation to confront;
and,

— to conduct high effect, low-cost actions
calculated to maximize damage that will, over
time, lead to the final erosion of an enemy
state's political-economic-social system.

The global struggle for power, influence, and
resources continues into the 21st century with different
actors, different names, and different rhetoric. Thus,
Lenin's strategic vision for the achievement of political
power and radical political-economic-social change is
no longer the property of strict Leninists. Everybody—
anti-democratic populist, anti-system populist, anti-
globalist, "New" Socialist and the revolutionary left,
and radical Islamist, alike — is free to study it, adapt it,
and use it for his own purposes. Osama bin Laden and
al-Qai'da is a case in point. As uncomfortable as this
conclusion might be, however, Lenin also reminds us
that there is a viable solution to the problem. That is,
"We [all who want to retain the freedoms we enjoy]
should have but one slogan— seriously learn the art of
war. 1AJ

49

CONCLUSIONS AND RECOMMENDATIONS

The Venezuelan, Colombian, and al-Qai'da in
Western Europe cases represent a diverse array of
contemporary conflict situations. The differences in
these irregular and asymmetric wars are illustrated by
a range of objectives, motives, and modes of operations.
As examples, the Venezuelan case demonstrates a
neo-populist and New Socialist set of motives and
objectives. The present Colombian situation describes
more narco-criminal self-enrichment than left or
right-wing ideological objectives. And al-Qai'da in
Western Europe emphasizes regional hegemonic
political motives and objectives. At the same time, the
Venezuelan case illustrates the use of institutionalized
popular militias as a tool of contemporary statecraft. In
Colombia, nonideological criminal and Left and Right-
wing persuasion and coercion is being conducted by
relatively large criminal or warrior groups (pandas
criminales). And, in Spain and other parts of Western
Europe, al-Qai'da is relying on small loosely organized
networks of propaganda-agitator gangs to initiate the
achievement of its political aims.

These cases demonstrate that the gang phenomenon
(popular militias, gangs/cells, and bandas criminales)
and its state and nonstate patrons are not directly
challenging incumbent governments for control of
targeted states. By responding to this kind of challenge
to security, stability, and sovereignty in traditional
ways, including accepting corrupt practices and/ or
pretending the problems will go away, most political
leaders are playing into the hands of the phenomenon
and the powers that support it. They do not appreciate
the nature and extent of the violent challenge to
political order and the values of democratic governance

50

being raised by state or hegemonic power-supported
militias (Venezuela), criminal bands (Colombia), and
small propaganda-agitator gangs (al-Qai'da). Yet,
what makes these cases significant beyond their own
domestic political context is that they are the results
and harbingers of much of the ongoing purposeful
political chaos of the 21st century.

These cases are also significant beyond their
differences in that the common denominator political
objective in each supposedly unique case is virtually
the same. The common theme that runs through each
of the diverse cases outlined above is that any indirect
or direct attempt to violently control, depose, or replace
a targeted government must eventually lead to:

The erosion of democratic governance;

The erosion of state institutions, and to the

processes leading to state failure;

The establishment of military or civilian

dictatorships;

The establishment of tribal states, criminal

anarchy, or warlordism;

The creation of "new" socialist, populist, or

criminal states; or

The absorption, division, or reconfiguration of

existing states into entirely different states.
As a corollary, this cautionary tale and Colonel
T.X. Hammes, USMC (Ret.) remind us that the United
States still does not have a unified strategy and
organizational structure to deal effectively with the
debilitating type of wars examined above — that is,
4GW irregular asymmetric war. 121 The strategic level
requirement, thus, involves two different levels of
analysis — cognitive and organizational:

51

• The need for civilian and military leaders at
all levels to better understand the nature of
contemporary conflict, and to implement a
realistic and multidimensional ends, ways, and
means strategy to deal with it; and,

• The need for an organizational structure to
ensure high levels of individual, national-
institutional, and trans-national unity of effort.

Ambassadors Stephen Krasner and Carlos Pascual
have argued that in today's increasingly interconnected
world, the chaos inherent in weak and failed states
poses an acute risk to U.S. and global security. When
chaos prevails, terrorism, narcotics trade, weapons
proliferation, and other forms of organized crime can
flourish. "Left in dire straits, subject to depredation,
and denied access to basic services, people become
susceptible to the exhortations of demagogues and
hate-mongers." 122 The international community and
the United States are not, however, prepared to deal
with governance failure. The United States and the rest
of the world need to develop the tools to both prevent
conflict and manage its aftermath when it does occur.
Krasner and Pascual further argue that, "To promote
sustainable peace, Washington and its partners must
commit to making long-term investments of money,
energy, and expertise." 123

As a consequence, in the spring of 2004, the George
W. Bush administration created a new office within
the State Department: the Office of the Coordinator for
Reconstruction and Stabilization (S/CRS). The intent
was to create an organization that could help lead and
coordinate joint operations across U.S. governmental
agencies to respond to evolving crises around the
world, in concert with the international community. 124
This was a step in the right direction and a worthy

52

attempt to develop a new set of tools for conflict
prevention and conflict response. These tools ranged
from establishing a capability to plan for stabilization
and reconstruction, to organizing resources from
various U.S. governmental agencies so they might
be mobilized quickly in response to a given crisis
situation. 125 The results of these efforts, however, have
been disappointing.

The basis of the problem is that no single U.S.
Government agency (the Department of State) and that
no number of partial measures can be of much help in
dealing with contemporary irregular conflict until:

• Fundamental strategic -level changes in the
amorphous U.S. interagency organizational
architecture are implemented to ensure
an effective "whole-of-government" and
transnational unity of effort;

• Strategic leaders throughout the entire
interagency community understand and can
deal with ambiguous unconventional irregular
conflict in a comprehensive, coordinated, and
cooperative manner; and,

• The entire civil-military interagency community
can come together to provide the United
States with a unified capability to utilize the
instruments of soft and hard power that are
effective in the contemporary global security
arena; and, that can be integrated with coalition/
partner governments and armed forces,
nongovernmental agencies, and international
organizations.

Such unity of effort recommendations may be
found, for example, in the Phase 1, 2, and 3 Reports
of the Center for Strategic International Studies (CSIS).

53

These comprehensive reports are entitled "Beyond
Goldwater-Nichols: Defense Reform for a New Strategic
Era," "Beyond Goldwater-Nichols: U.S. Government
and Defense Reform for a New Strategic Era," and
"The Future of the National Guard and Reserves." 126
Additionally and importantly, James R. Locher III
and his associates at the Project on National Security
Reform (PNSR) are making recommendations similar
to those passed by the U.S. Congress in the Goldwater-
Nichols Department of Defense (DoD) Reorganization
Act. These recommendations focus on the bases
from which the U.S. interagency community might
develop a more effective organizational capability to
work synergistic ally over the long term in complex,
irregular, and politically ambiguous contemporary
conflict situations. 127

In addition to dealing with the political and
organizational difficulties at the interagency level,
it is imperative to develop leaders who can generate
strategic clarity and make it work. Like other members
of the interagency community who act as individual
instruments of U.S. national power, the expanding
roles and missions of the armed forces will require
new doctrine, organization, equipment, training, and
education to confront the challenges of contemporary
conflict. In this connection, the U.S. armed forces, along
with their civilian counterparts, must also respond to
responsible recommendations that go well beyond
present-day conventional warfare.

Such recommendations, as one example, that
pertain directly to the U.S. Army may be found in
"TF (Task Force) Irregular Challenges CSA (Chief of
Staff of the U.S. Army) Outbrief," and "TF Irregular
Challenge DAS Decision Brief on Interagency Cadre
Initiative," presented by the Strategic Studies Institute
of the U.S. Army War College in 2005 and 2006. The

54

recommendations in these documents center on the
cultural mind set adjustments required to transition
from the kinetic fight to nonkinetic conflict. 128 In that
connection, there are at least four doctrinal, educational,
and cultural imperatives the U.S. armed forces must
consider and act upon:

• The study of the fundamental nature of conflict
has always been the philosophical cornerstone
for understanding conventional conflict. It is no
less relevant to asymmetric irregular conflict.
Thus, it is recommended that the U.S. Army take
the lead in promulgating 21st century concepts
that can help leaders deal with the uncertainty,
complexity, ambiguity, and chaos they will face
as an inherent part of modern human conflict.

• Civilian and military leaders at all levels
must understand the strategic and political-
psychological implications of operational and
tactical actions in contemporary conflicts that
involve entire societies. In these terms, it is
recommended that leaders be taught how force
can be employed to achieve political ends, and
the ways that political considerations affect the
use of force.

• At the same time, strategic leaders at all levels
must be educated to understand the challenges
of "ambiguity" so that they may be better
prepared to deal with them.

• It is also recommended that the U.S. Army take
the lead in revitalizing and expanding efforts
that enhance interagency as well as international
cultural awareness — such as civilian and
military exchange programs, language training
programs, cultural orientation programs, and
combined (multinational) civilian and military

exercises. 129

55

These cognitive and organizational recommen-
dations are nothing radical. They are only the logical
extensions of basic security strategy and national and
international asset management. To quote Krasner and
Pascual again, "The broader payoff is security. . . . That
can only be in everyone's best interest." 130

ENDNOTES

1. General Rupert Smith, The Utility of Force: The Art of War in
the Modern World, New York: Alfred A. Knopf, 2007.

2. Kimbra L. Fishel, "Challenging the Hegemon: Al-Qai'da's
Elevation of Asymmetric Insurgent Warfare onto the Global
Arena," in Robert J. Bunker, ed., Networks, Terrorism and Global
Insurgency, London, UK: Routledge, 2005, pp. 115-128.

3. Max G. Manwaring, A Contemporary Challenge to State
Sovereignty: Gangs and Other Illicit Trans-National Criminal
Organizations in Central America, El Salvador, Mexico, Jamaica, and
Brazil, Carlisle, PA: Strategic Studies Institute, U.S. Army War
College, 2007.

4. Niccolo Machiavelli, The Art of War, New York: DeCapo
Press, [1521] 1965, p. 196.

5. See, as examples, V. I. Lenin, "What Is To Be Done?" [1902];
"Two Tactics of Social-Democracy in the Democratic Revolution,"
[1907]; and "Socialism and War," [1915] in Robert C. Tucker, ed.,
The Lenin Anthology, New York: W. W. Norton & Company, Inc.,
1975, pp. 12-19, 112-114, 134-141, 194-195, respectively.

6. Lenin, "The Tasks of Russian Social-Democrats," Anthology,
p. 5.

7. See, as examples, J. Boyer Bell, Dragonwars, New Brunswick,
NJ:TransitionPublishers, 1999; Thomas A. Marks, Maoisf Insurgency
since Vietnam, London, UK: Frank Cass, 1996; and David E. Spencer,
"Reexamining the Relevance of Maoist Principles to Post-Modern
Insurgency and Terrorism," unpublished manuscript, n.d. Also

56

see General Vo Nguyen Giap, People's War People's Army: The
Viet Cong Insurrection Manual for Underdeveloped Countries, New
York: Frederick A. Praeger, 1962, pp. 34-37; Abraham Guillen,
"Philosophy of the Urban Guerrilla," Donald C. Hodges, trans,
and ed., The Revolutionary Writings of Abraham Guillen, New York:
William Morrow & Company, Inc., 1973; Qiao Liang and Wang
Xiangsui, Unrestricted Warfare, Beijing, China: PLA Literature
and Arts Publishing House, 1999; and Jorge Verstrynge Rojas, La
Guerra Periferica y el Islam Revolucionario: Origines, Reglas, y Etica de
la Guerra Asimetrica, Special Edition for the Army of the Bolivarian
Republic of Venezuela, IDRFAN, Enlace Circular Militar, Madrid,
Spain: El Viejo Popo, May 2005.

8. Ibid., pp. 3-11; and "What Is To Be Done?" pp. 12-19, 112-
114; and "Socialism and War," pp. 194-195. Also see "The State
and Revolution," p. 324; "The Proletarian Revolution and the
Renegade Kautsky," p. 467; "A Great Beginning," p. 478; and
"The Dictatorship of the Proletariat," pp. 489-496, in Anthology.

9. Ibid.; and Vladimir Torres, The Impact of "Populism " on Social,
Political, and Economic Development in the Hemisphere, Ottawa,
Canada: Canadian Foundation for the Americas (FOCAL), July
2006, pp. 1-18, available at www.focal.ca.

10. Lenin, "The Tasks of the Youth Leagues," Anthology, p.
671.

11. Ibid.

12. Lenin, "The Tasks of the Russian Social Democrats,"
Anthology, pp. 3-12.

13. Ian Beckett, "The Future of Insurgency," Small Wars &
Insurgencies, March 2005, pp. 22-36.

14. President Chavez used this language in a charge to the
National Armed Forces (FAN) to develop a doctrine for 4th
Generation Warfare. It was made before an audience gathered
in the Military Academy auditorium for the "1st Military Forum
on Fourth Generation War and Asymmetric War," in Caracas,
Venezuela, and was reported in El Universal, April 8, 2005. Also,
in January 2005, General Melvin Lopez Hidalgo, Secretary of

57

the Venezuelan Defense Council, stated publicly that Venezuela
was changing its security doctrine in order to better confront "la
amenaza permanente de los Estados Unidos," (the permanent
threat of the United States) and that a document entitled Pueblo
en Armas (The People in Arms) had been published that confirmed
the primary military principles of the President. Reported in
Panorama, April 27, 2005.

15. "War of all the people," is a direct English translation
of Chavez's words— "guerra de todo el pueblo." A more
common translation from post-World War II national liberation
movements is "People's War." Thus, we use interchangeably —
as does Chavez — 4th Generation War, Asymmetric War, Super
Insurgency, People's War, and War of All the People.

16. "Special Report: Hugo Chavez's Venezuela," The Economist,
May 14-20, 2005, pp. 23-24; "The Chavez Machine Rolls On," The
Economist, December 2, 2006, pp. 41-42; "Chavez Victorious," The
Economist, December 9, 2006; Michael Shifter, "In Search of Hugo
Chavez," Foreign Affairs, May/June 2006, p. 46; Michael Shifter,
"Hugo Chavez: A Test for U.S. Policy," Washington, DC: Inter-
American Dialogue, March 2007.

17. Ibid.

18. Ibid. Also see Steve Elmer, "Revolutionary and Non-
Revolutionary Paths of Radical Populism: Directions of the
Chavez Movement in Venezuela," Science and Society, April 2005,
pp. 160-190; Foreign Broadcast Information Service (FBIS), "New
Regional Voice," April 22, 2005; FBIS, "Expanded Telesur News
Coverage Furthers Anti-US Line," December 22, 2005; and FBIS,
"Perspective Audience," August 5, 2006.

19. Endnote #14 above; and Norberto Ceresole, Caudillo,
Ejercito, Pueblo, Caracas: Analitica Editora, 1999.

20. Endnote #14 above.

21. Neo-populism is defined as anti-system, and populism is
defined as anti-democracy. See Torres.

58

22. Colonel Thomas X. Hammes, USMC (Ret.), The Sling and
the Stone: On War in the 21st Century, New York: Zenith Press,

2006, pp. 207-215; Giap, pp. 34-37; and statements made by
President Hugo Chavez and General Melvin Lopez Hidalgo, cited
in Endnote #14 above.

23. Evidence of President Chavez's expanding horizons may be
seen in a number of different activities. For example, see Fernando
Baez, "On the Road with Bush and Chavez," The New York Times,
March 11, 2007, www.nytimes.com/2007/03/ll/opinion/HBaez.hml?;
"Iran, Venezuela to Set Up HQ for Joint Cooperation," www.
iranmania.com; Steven Dudley, "Chavez in Search of Leverage,"
The Miami Herald, April 28, 2007, p. 9A; Christopher Toothaker,
"Venezuela Weapons Worry US, Colombia," May 17, 2008,
at news.yahoo.eom/s/ap/20080516/ap_on_re_la_am_ca/venezuela_
chavez_interpol&pre...; and Simon Romero, "Venezuela," The New
York Times, February 24, 2007, www.nytimes.com/2007/02/14/world/
americas/14latin.html? ; also see Max G. Manwaring, Latin America's
New Security Reality: Irregular Asymmetric Conflict and Hugo Chavez,
Carlisle, PA: Strategic Studies Institute, U.S. Army War College,

2007, pp. 32-36.

24. Public address of General Briceno, July 18, 2007.

25. Ibid.; and Endnote #13 above.

26. Ibid; and for similar rhetoric, see Radio Nacional de Venezuela,
September 27-28, 2005; El Universal, April 8, 2005; "Special Report
on Hugo Chavez's Venezuela," The Economist, May 14-20, 2005,
p. 25; Carlos Gueron, "Introduction," Joseph S. Tulchin, ed.,
Venezuela in the Wake of Radical Reform, Boulder, CO: Lynne Rienner
Publishers, 1993, pp. 1-3; Steven Elmer, "Revolutionary and
Non-Revolutionary Paths of Radical Populism: Directions of the
Chavez Movement in Venezuela," Science and Society, April 2005,
pp. 160-190; and Ian James, "Chavez insta al mundo a rebelarse
contra EEUU, Nuevo Herald (Miami, FL), January 30, 2006.

27. Briceno.

28. Endnote #22 above. Also, evidence of Venezuelan agitator
activities may be seen in Oscar Castella and Nelly Luna, "Acusan
de Terrorismo a 24 vinculados con chavismo," March 14, 2008,

59

available at www.hacer.org/current/Peru/02.php; Jose de Cordoba
and Jay Solomon, "Chavez Aided Colombia Rebels, Captured
Computer Files Show," Wall Street Journal, May 9, 2008, at online.
wsj.com/public/article_print/SB121029900813279693.html; and

Simon Romero, "Files Tying Venezuela to Rebels Not Altered,
Report Says," The New York Times, May 16, 2008, at www.nytimes.
com/2008/05/16/world/americas/16latin.html?.

29. These and subsequent assertions are consensus statements
based on a series of author interviews with more than 400 senior
U.S. and Latin American civilian and military officials. These
interviews were conducted from October 1989 through July 1994;
September 1996; December 1998; November 2000; February 2001;
and March 2003, 2004, 2005, 2006, and April through July 2007.
These interviews are cited hereafter as Author Interviews.

30. Ibid.

31. This argument is strengthened as a result of a recent
Colombian incursion into the "sovereign" territory of Ecuador.
See Simon Romero, "Crisis at Colombia Border Spills into
Diplomatic Realm," New York Times, March 4, 2008; and Simon
Romero and James C. McKinley Jr., "Crisis Over Colombian Raid
Ends in Handshakes," New York Times, March 8, 2008, available at
www. Nytimes.com/2008/03/04/world/Americas/04-venez.html? and
www.nytimes.com/2008/03/08/world/americas/08colombia.html?

32. Smith, p. 3.

33. Author Interviews.

34. Colombia's New Armed Groups, Bogota, Colombia/ Brussels,
Belgium: International Crisis Group Latin America Report No.
20, May 10, 2007, available at www .crisgroup.org. Also see Diana
Cariboni, "New Breed of Paramilitaries Infiltrate Urban'Refuges',"
Inter-Press Service, June 27, 2006, available at p.7.news.re2.yahoo.
com/s/oneworld/20060626; Mayer Nudell, "Ex-paramilitaries
form crime gangs in Colombia," The Washington Post, July 31,
2006, www.washingtonpost.com/wp-dym/content/article/2006/07/31/
AR2006073100508.html; Caleb Harris, "Paramilitaries Re-emerge
in Pockets of Colombia," The Christian Science Monitor, March
14, 2007, www.usatoday.com/news/world/2007-03-12-colombia_N.
htm?cas=34; Joshua Goodman, "Report: New Criminal Gangs

60

in Colombia," news.yahoo.eom/s/ap/200c070816/ap_on_re_la_
am_ca/colombia-criminal-gangs&pri; and Sibylla Brodzinsky, "Is
Colombia's FARC On the Ropes? May 21, 2008, at news. yahoo. com/s/
csm/20080521/wl_csm/oropes_l&printer=;l_ylt=Ahy4qaymdkk.

35. Lenin, "The Tasks of the Russian Social-Democrats,"
Anthology, pp. 3-7; also see Chapter One, "Introduction," to this
book.

36. Author Interviews. Also see the discussion of the
Rhizematic Command System in Smith, pp. 332-334.

37. Author Interviews. Also, a good example of this kind of
thinking and action is found in Anthony Vinci, "The Strategic Use
of Fear by the Lord's Resistance Army," Small Wars & Insurgencies,
December 2005, pp. 360-381.

38. Douglas Porch, Uribe's Second Mandate, The War and the
Implications for Civil-Military Relations in Colombia, Monterey, CA:
Naval Post Graduate School, February 2006, p. 3, available at
www.ccc.nps, navy.mil; and "Colombia's New Armed Groups," p.

5.

39. Ibid. There are a number of additional citations that can
be used here. They include Nudell, July 31, 2007; Cariboni, June
27, 2006; Harris, March 14, 2007; "Colombia: NDI Analysis Finds
Parties Lack Credibility, Stability," in FBIS LAP 2005/2004003,
November 22, 2005; "Pacto con el diablo," Semana, February 18,
2008; "The Truth about Triple-A," The National Security Archive,
February 18, 2008; "Paramilitaries as Proxies," The National
Security Archive, February 18, 2008; and "Unraveling the
Paramilitary Web," The National Security Archive, February 18,
2008, available at www.gwu,edu/nsarchiv/NSAEBB/NSAEBB223/
index Mm.

40. This is a pattern that is well known in northern Mexico.
There, the drug cartels and hired gangs are collaborating to control
specified routes for drugs and other illegal commerce moving into
the United States. Also see Manwaring, A Contemporary Challenge
to State Sovereignty.

41. Cariboni, Forero, Harris, Goodman, McDermott, Nudell,
and "Colombia's New Armed Groups."

61

42. Ibid,

43. Colombia's New Armed Groups, 2007.

44. Ibid.

45. Ibid.; and Author Interviews. Also see Ana Maria Bejarano
and Eduardo Pizarro, "The Crisis of Democracy in Colombia: From
'Restricted' Democracy to 'Besieged' Democracy," unpublished
manuscript, 2001; and "Colombia: A Failing State?" ReVista:
Harvard Review of Latin America, Spring 2003, pp. 1-6.

46. Ibid.

47. David C. Jordan, Drug Politics: Dirty Money and Democracies,
Norman: University of Oklahoma Press, 1999, pp. 158-170, 193-
194.

48. Author Interviews; Annual Report 1999, Washington, DC:
Inter-American Development Bank, 2000, p. 141; and data taken
from Mauricio Rubio, "La justicia en una sociedad violenta," in
Maria Victoria Llorente and Malcom Deas, Reconocer la Guerra para
construir la paz, Bogota, Colombia: Ediciones Uniandes CERED
Editorial Norma, 1999, p. 215.

49. A recent example is that Colombia extradited Carlos
Maria Jimenez, one of the country's most feared paramilitary
leaders, to the United States on May 7, 2008, to face drug
trafficking charges. See "Colombian warlord pleads not guilty
to drug trafficking," available at cnn.site.printihis.clickability.com/
pt/cpt?action=cpt&title=Colombian+warlord=plea..., May 12, 2008.
Also see Frank Bajak, "Colombia extradites 14 jailed warlords to
US," available at news.yahoo.eom/s/ap/20080513/ap_re_la_am_ca/
Colombia _paramilitaries_3&pri...

50. Jordan, p. 161.

51. Ibid.; and Author Interviews.

52. Daniel C. Esty, Jack Goldstone, Ted Robert Gurr, Barbara
Harff, and Pamela T. Surko, "The State Failure Project: Early
Warning Research for U.S. Foreign Policy Planning," in John L.

62

Davies and Ted Robert Gurr, eds., Preventive Measures: Building
Risk Assessment and Crisis Early Warning Systems, New York:
Rowman & Littlefield, 1998.

53. Phil Williams, From the New Middle Ages to a New Dark Age:
The Decline of the State and U.S. Strategy, Carlisle, PA: Strategic
Studies Institute, U.S. Army War College, June 2008; and John
Rapley, "The New Middle Ages," Foreign Affairs, May/June 2006,
pp. 93-103.

54. Ibid.

55. Ambassador Myles R. R. Frechette, In Search of the Endgame:
A Long-Term Multilateral Strategy for Colombia, Coral Gables, FL:
The Dante B. Fascell North-South Center at the University of
Miami, February 2003.

56. Ambassador Myles R. R. Frechette, "Colombia and the
United States — The Partnership: But What Is the Endgame?"
Carlisle, PA: Strategic Studies Institute, U.S. Army War College,
2006.

57. Author Interviews.

58. Simon Romero, "Colombian Guerrilla Leader Reported
Dead," The New York Times, May 25, 2008, available at www.
nytimes.com/2008/05/25/world/americas/25colombia.html? _
r=l&th=&oref=sl... Also see Sibylla Brodzinsky, "Is Colombia's
FARC on the Ropes?"

59. Ibid.

60. Sun Tzu, The Art of War, Samuel B. Griffith, trans., London,
UK: Oxford University Press, [ca. 500 BC] [1782, 1910] 1971, p.
73.

61. Ibid.

62. For primary source material on statements made by al-
Qai'da, see usinfo.state.gov/topical/pol/teror/99129502.html. Also see
Raymond Ibrahim, The Al-Qai'da Reader, New York: Broadway

63

Books, 2007; and Gustavo de Aristegui, La Yihad en Espana: La
obsession por reconquistar Al-Andalus, Madrid, Spain: La Esfera de
los Libros, S.L, 5th Edition, 2006. Also note Author Interviews.

63. Marc Sageman, Leaderless Jihad: Terror Networks in the 21st
Century, Philadelphia, PA: University of Pennsylvania Press,
2007.

64. Ibid. Also see Smith, pp. 332-334; Author Interviews.

65. Ibid. Also, "compelling one to accede to one's will" is a
classic definition of war. See Carl von Clausewitz, On War, Michael
Howard and Peter Paret, trans, and eds., Princeton, NJ: Princeton
University Press, [1832] 1976, p. 75.

66. Fishel; and Author Interviews.

67. Lenin, "The Revolutionary Party and Its Tactics,"
Anthology, p. 8.

68. It should be noted here that al-Qai'da doctrine and
strategy, as it might be applied by diverse Islamic groups, is not
well-understood, and there are many analysts that are not in
agreement on what the organization is, what the war-fighting
doctrine might be, or what any kind of response ought to be.

69. Lenin, "The Revolutionary Party and Its Tactics,"
Anthology, p. 8; and Author Interviews. Also see Walter Laqueur,
"Postmodern Terrorism," Foreign Affairs, September/ October
1996, pp. 24-36; Qiao and Wang; Frank Kitson, Warfare as a Whole,
London, UK: Faber and Faber, 1987; and Max G. Manwaring and
John T. Fishel, "Insurgency and Counterinsurgency: Toward a
New Analytical Approach," Small Wars & Insurgencies, Winter,
1992, pp. 272-310. Hereafter cited as SWORD Papers.

70. Daniel C. Esty, Jack Goldstone, Ted Robert Gurr, Barbara
Harff, Pamela T. Surko, Alan N. Unger, and Robert S. Chen, "The
State Failure Project: Early Warning Research for U.S. Foreign
Policy Planning," in John L. Davies and Ted Robert Gurr, eds.,
Preventive Measures: Building Risk Assessment and Crisis Early
Warning Systems, New York: Rowman & Littlefield, 1998, pp. 27-
38; Thomas F. Homer-Dixon, "On the Threshold: Environmental

64

Changes as Causes of Acute Conflict," International Security, Fall
1991, pp. 76-116; and Thomas F. Homer-Dixon, Environment,
Scarcity, and Violence, Princeton, NJ: Princeton University Press,
1999, pp. 133-168. Also see Qiao and Wang; and SWORD Papers.

71. Robert M. Cassidy, "Feeding Bread to Luddites: The
Radical Fundamentalist Islamic Revolution in Guerrilla Warfare,"
Small Wars & Insurgencies, December 2005, p. 348; Peter L. Bergen,
Holy War, Inc.: Inside the Secret World of Osama bin Laden, New York:
Free Press, 2001; Paul Rich, "Al-Qai'da and the Radical Islamic
Challenge to Western Strategy," Small Wars & Insurgencies, Spring
2003, pp. 45-46; and Thomas A. Marks, "Ideology of Insurgency:
New Ethnic Focus or Old Cold War Distortions," Small Wars
& Insurgencies, Spring 2004, pp. 122-125. Also see Author
Interviews.

72. Ibid.; and Rohan Gunaretna, Inside the al-Qai'da Global
Network of Terror, London, UK: Hurst, 2002, p. 89.

73. Rich, p. 47.

74. This document is entitled "Pledge of Death in God's Path."
For primary source material on statements made by al-Qai'da,
see Endnote #62 above. Also see Stephen Ulph, "Mujahideen
Pledge Allegiance on the Web," Washington, DC: The Jamestown
Foundation, November 29, 2005.

75. Lenin, "Report on War and Peace," and "Symptoms of a
Revolutionary Situation," Anthology, pp. 545, 275-276, respectively.
Also see Mao Tse-Tung, Samuel B. Griffith II, trans., On Guerrilla
Warfare, Champaign: University of Illinois Press [1937] [1961],
2000.

76. Fishel, pp. 121. Also see Peter Bergen, "The Dense Web
of al-Qai'da," Washington Post, December 25, 2003, A29. Bergen
describes al-Qai'da and its supporters as a structure of concentric
rings in which different kinds of operations may be conducted
vertically and horizontally by different parts of different rings.

77. Michael Scheuer, "Al-Qai'da's New Generation:
Less Visible and More Lethal," Washington, DC: Jamestown
Foundation, October 3, 2005; Hammes, The Sling and the Stone, p.
135.

65

78. Ibid.; also see Gunaretna, 2002, p. 54.

79. Ibid.; also see Cassidy, pp. 338-349; Fishel, pp. 121-125;
Hammes, The Sling and the Stone, p. 350; and Chris Heffelfinger,
"Al-Qai'da's Evolving Strategy Five Years after September 11,"
Washington, DC: Jamestown Foundation, September 12, 2006.

80. Scheuer, "Al-Qai'da's New Generation."

81. Ibid.; also see Michael Moss and Souad Mekhennet, "Rising
Leader for Next Phase of Al-Qai'da's War," The New York Times,
April 4, 2008, www.nytimes.com/2008/04/04/world/asia/04qadea.
html.

82. Ibid.; also see Michael Scheuer, "Is Global Jihad a Fading
Phenomenon?" Washington, DC: Jamestown Foundation, April 1,
2008.

83. Author Interviews.

84. See Endnote #62 above regarding primary source material;
and Michael Scheuer, "Taking Stock of the Zionist-Crusader War,"
Washington, DC: Jamestown Foundation, April 25, 2006.

85. Walter Laquerer, "Post Modern Terrorism," Foreign Affairs,
September/ October 1996, pp. 24-25.

86. Ibid.; and Michael Scheuer, "Al-Qai'da Insurgency
Doctrine: Aiming for a Long War," Washington, DC: Jamestown
Foundation, February 28, 2006.

87. Ibid.

88. Ibid.; and Michael Scheuer, "Al-Zawahiri's September 11
Video Hits Main Themes of Al-Qai'da Doctrine," Washington,
DC: Jamestown Foundation, September 19, 2006. Note: Ayman
al-Zawahiri is the Deputy Chief of al-Qai'da.

89. See Endnote #62 above.

66

90. Haahr, 2007; and Javier Jordan and Nicola Horsburg,
"Mapping Jihadist Terrorism in Spain," Studies in Conflict and
Terrorism, Vol. 28, 2005, pp. 174-179.

91. A copy of the proceedings and charges against the 29
accused can be found at: www.elpais.es/static/especiales/2006/
autollM/elp ais_auto.html? sump agl. See also www.usatoday.com/
news/world/2007-02-15-madrid-terror-trial_x.htm.

92. Ibid. Also see Victoria Burnett, "Spain Arrests 16 North
Africans Accused of Recruiting Militants," The New York Times,
May 29, 2007 at www.nytimes.com/2007/05/29/world/europe/29spain.
html?

93. Author Interviews. Also see "The Madrid Train Bombings,"
in Lorenzo Vidino, ATQai'da in Europe, Amherst, NY: Prometheus
Books, 2006, pp. 291-335.

94. For details regarding first- second- and third-generation
gangs in the Americas, see Max G. Manwaring, Street Gangs: The
New Urban Insurgency, Carlisle, PA: Strategic Studies Institute,
U.S. Army War College, March 2005.

95. See Endnotes #91, 92, and 93 above.

96. Ibid.

97. Investigations in the United Kingdom regarding the
bombings in London in 2005 yielded the information that there
was a close relationship between that attack and the one in
Madrid, Spain, a year earlier and, in particular, that al-Qai'da
had been more involved in the Madrid bombings than had
been originally reported by Spanish authorities. See House of
Commons, "Report of the Official Account of the Bombings in
London on 7th July 2005," May 2006, www.officialdocuments.co.uk/
hc0506/hcl0/1087/1087.asp.59. Also see Ludo Block, "Developing
a New Counter-Terrorism Strategy in Europe," Washington,
DC: Jamestown Foundation, November 21, 2006; and "From
Afghanistan to Iraq through Europe," in Vidino, 2006, pp. 233-
262. The Dutch have also looked carefully into Jihadi activities in
Europe. See Edwin Baker, Jihadi Terrorists in Europe, Den Haag:
Netherlands Institute of International Relations, December 2006;

67

and Violent Jihad in the Netherlands: Current Trends in the Islamist
Terrorist Threat, Den Haag: Ministry of the Interior and Kingdom
Relations, n.d.

98. Ibid.; also see "GSPC in Italy: The Forward Base of Jihad
in Europe," Washington, DC: Jamestown Foundation, February 9,
2006.

99. "Britain's Nation Security Plans to Be Overhauled," The
International Herald Tribune, March 19, 2008, at www.iht.com/bin/
printfriendly.php?id=11235552; "Terror Trial Exposes Network of
Terror Camps in Picturesque Rural England," The International
Herald Tribune, February 27, 2008, at www.iht.com/bin/printfriendly.
php?id=10450455; "Intelligence Chief Says 'Several Hundred'
Extremists Living in Germany," The International Herald Tribune,
March 24, 2008, at www.iht.com/articles/ap/2008/03/24/europe/
EU-GEN-Germany-Terror-Threat.php; and "German Intelligence
Describes a 'New Quality' in Jihadi Threats," Washington, DC:
Jamestown Foundation, February 20, 2008; Javier Jordan and
Robert Wesley, "After 3/11: The Evolution of Jihadist Networks
in Spain," Washington, DC: Jamestown Foundation, January
12, 2006; "Terrorist Threat to UK-MI5 Chief's Full Speech,"
Times Online, November 11, 2006; and James Brandon, "The
Pakistan Connection to the United Kingdom's Jihad Network,"
Washington, DC: The Jamestown Foundation, February 22, 2008.

100. Aristigui, 2006, pp. 85; 131-132; 136-142; and 187; and
Author Interviews.

101. See "Terrorism: Al-Qai'da Leader Threatens France and
Spain," Adnkronos, September 22, 2008 at www.adnkronos.com/IGN/
ext/printNewsAki.php?lang=English.

102. Author Interviews. Also see Jordan and Wesley; Burnett;
and "Catalonia: Europe's New Center of Global Jihad," Washing-
ton, DC: Jamestown Foundation, June 7, 2007.

103. Author Interviews.

104. Ibid; and Steve Kingstone, "Spain's radical plan for
migrants," BBC News, September 3, 2008, at newesvote.bbc.co.uk/
mpapps/pagetools/prin t/news.bbc. co. uk/2/hi/europe/7568887.stm .

68

105. "MI5 Chief's Full Speech."

106. "Britain's National Security Plans to Be Overhauled."

107. Aristigui; and Author Interviews.

108. Jane Barrett, "Court Finds 21 Guilty of Madrid Train
Bombings," Reuters, May 27, 2008, at www.reuters.com/articlePrin
t?ArticleId=USL308491320071031. Also see Jordan and Horsburg,
pp. 174-179.

109. Ibid.; and Author Interviews.

110. Michael Scheuer, "Al-Qai'da Doctrine for International
Political Warfare," Washington, DC: Jamestown Foundation,
November 1, 2006; Michael Scheuer, "Al-Qai'da Insurgency
Doctrine: Aiming for a Long War"; and "German Intelligence
Describes a 'New Quality' in Jihadi Threats," Washington, DC:
Jamestown Foundation, February 20, 2008.

111. Author Interviews.

112. Ibid.; also see Scheuer, "Al-Qai'da Doctrine for
International Political Warfare."

113. Craig Whitlock, "Al-Qai'da Masters Terrorism on
the Cheap," Washington Post, September 2, 2008, at www.
washingtonpost.com/wp-dyn/content/article/2008/08/23.

114. Fishel, pp. 115-128.

115. Clausewitz, p. 596.

116. Gunaretna, pp. 54, 89; Bergen, Holy War.

117. Giandominico Picco, "The Challenge of Strategic
Terrorism," Terrorism and Political Violence, Vol. 17, 2005, p. 13.

118. Ibid.

69

119. For early discussions of these phenomena, see Samuel
Huntington, The Clash of Civilizations and the Remaking of World
Order, New York: Simon & Schuster, 1996; and Robert D. Kaplan,
The Coming Anarchy, New York: Random House, 2000. Also see
David Easton, A Framework for Political Analysis, Englewood
Cliffs, NJ: Prentice-Hall 1965. Note: David Easton formulated and
elaborated the concept of "authoritative allocation of values" as
the accepted definition of politics.

120. Lenin, "Report on War and Peace," Anthology, p. 549.

121. Hammes, The Sling and the Stone, pp. 207-215. Also see
Qiao and Wang, 1999, p. 108.

122. Stephen D. Krasner and Carlos Pascual, "Addressing
State Failure," Foreign Affairs, July/ August, 2005, p. 153.

123. Ibid., pp. 153-154.

124. Ibid., pp. 154-163.

125. Ibid., pp. 160-163.

126. These reports are authored by Clark A. Murdock, Michele
A. Flournoy, Christine E. Wormuth, Christopher A. Williams,
Kurt M. Campbell, Patrick T. Henry, Pierre A. Chao, Julianne
Smith, and Anne A. Witkowsky, entitled "Beyond Goldwater-
Nichols: Defense Reform for a New Strategic Era," Washington,
DC: Center for Strategic International Studies (CSIS), March 2004,
July 2005, and July 2006, available at www. csis.org/isp/bgn/reports.

127. See James R. Locher III, Victory on the Potomac: The
Goldwater-Nichols Act Unifies the Pentagon, College Station: Texas
A&M University Press, 2002. The PSNR.org website is restricted,
but information may be obtained by writing to the Project
on National Security Reform, The Center for the Study of the
Presidency, 1020 19th St. NW, Suite 250, Washington, DC 20036.

128. See "TF Irregular Challenge CSA, Outbrief," Carlisle, PA:
Strategic Studies Institute, U.S. Army War College, June 28, 2005;
and "TF Irregular Challenge DAS, Decision Brief on Interagency

70

Cadre Initiative," Carlisle, PA: Strategic Studies Institute, U.S.
Army War College, November 27, 2006.

129. Ibid. Also see Hammes, The Sling and the Stone, pp. 282-
291.

130. Krasner and Pascual, p. 163.

71