Abstract
Ongoing operations and emerging mission requirements place a heavy burden on Army resources, resulting in capability gaps that the Army is unable to fill by itself. This report argues that one way to fill those gaps is by building the appropriate capabilities in allies and partner armies through focused security cooperation. It argues that U.S. Army planners need a more comprehensive understanding of the types of capability gaps that partner armies might fill and a process for matching those gaps with candidate partner armies. The report begins by providing a theoretical context for building partner capacity and capabilities. It then discusses seven illustrative train and equip programs (TEPs) to identify specific lessons to inform Army planning and execution of TEPs in the future. It gives insights on the importance of developing and implementing metrics for security cooperation, an essential step in ensuring that Army activities are successful. The report then identifies U.S. Army capability gaps through a review of strategic and operational guidance documents and Army and joint studies. It outlines a five-step process for matching U.S. Army capability gaps with candidate partner armies, which include (1) determining the relative importance of capability gaps to the U.S. Army in specific situations, (2) considering the level of effort required to build the capability in a partner army, (3) identifying capabilities of shared interest to the U.S. Army and the partner army, (4) identifying candidate partner armies based on past participation in U.S.-led operations, and (5) determining existing partner army capabilities. The process aims to help Army planners identify which capabilities are of mutual benefit to the United States and partner nations. The report concludes with specific recommendations for Headquarters, Department of the Army, which should, at a minimum, include adopting this five-step process and focusing its efforts on those capability gaps that best support joint requirements.