History of Civil Affairs in The United States Armed Forces - Vietnam War

Vietnam War

In the Vietnam War, CA was more publicized than ever before with its phrase “winning the hearts and minds of the people.” CA’s greatest success was in working with U.S. Special Forces in South Vietnam’s central highlands and securing large areas of difficult terrain by winning the confidence of local tribes. Since there were no fixed battle lines, CA personnel had to stay in some places indefinitely. By 1966, each Special Forces A-Detachment in the highlands was augmented by a Civil Affairs-Psychological Operations officer (CAPO). The functions of CA and PSYOP were often combined. Three CA companies carried the burden of pacification, working with the State Department. CA assisted Vietnamese civilians by drilling wells, building roads and bridges to help market local products, setting up public health clinics and school buildings, and carrying out public education programs. The CA programs in the central highlands were, according to the Army’s Vice Chief of Staff at the time, “worth their weight in gold.” Overall, the effort to “win the hearts and minds” of the local people was hit and miss however due partly to the fact that civil administration expertise in the Army lay within Army Reserve.

Civil Operations and Rural Development Support (CORDS)

One of the most valuable and successful elements during the conflict was the Civil Operations and Revolutionary Development Support (CORDS) program, which was the civil affairs/civil-military operations aspect of American forces. CORDS was a joint command, with all service branches represented on its military side. CORDS had a large, mostly American, civilian contingent as well. CORDS was created in 1967 to integrate U.S. civilian and military support of the South Vietnamese government and people. CORDS achieved considerable success in supporting and protecting the South Vietnamese population and in undermining the communist insurgents' influence and appeal, particularly after implementation of accelerated pacification in 1968. For most of the time after its inception and through the early 1970s, CORDS was headed by Ambassador William Colby, later to become the head of the CIA.

Pacification was the process by which the government asserted its influence and control in an area beset by insurgents. It included local security efforts, programs to distribute food and medical supplies, and lasting reforms (like land redistribution). In 1965, U.S. civilian contributions to pacification consisted of several civilian agencies (among them, the Central Intelligence Agency, Agency for International Development, U.S. Information Service, and Department of State). Each developed its own programs. Coordination was uneven. The U.S. military contribution to pacification consisted of thousands of advisors. By early 1966, there were military advisory teams in all of South Vietnam's 44 provinces and most of its 243 districts. But there were two separate chains of command for military and civilian pacification efforts, making it particularly difficult for the civilian-run pacification program to function.

In 1967, President Lyndon B. Johnson established CORDS within the Military Assistance Command, Vietnam (MACV), which was commanded by General William Westmoreland, USA. The purpose of CORDS was to establish closer integration of civilian and military efforts. Robert Komer was appointed to run the program, with a three-star-equivalent rank. Civilians, including an assistant chief of staff for CORDS, were integrated into military staffs at all levels. This placed civilians in charge of military personnel and resources. Komer was energetic, strong-willed, and persistent in getting the program started. Nicknamed "Blowtorch Bob" for his aggressive style, Komer was modestly successful in leading improvements in pacification before the 1968 Tet offensive.

In mid-1968, the new MACV commander, General Creighton Abrams, and his new civilian deputy, William Colby, used CORDS as the implementing mechanism for an accelerated pacification program that became the priority effort for the United States. Significant allocations of personnel helped make CORDS effective. In this, the military's involvement was key. In September 1969—the high point of the pacification effort in terms of total manpower—there were 7,601 advisors assigned to province and district pacification teams. Of these 6,464 were military.

The effectiveness of CORDS was a function of integrated civilian and military teams at every level of society in Vietnam. From district to province to national level, U.S. advisors and U.S. interagency partners worked closely with their Vietnamese counterparts. The entire effort was well established under the direction of the country team, led by Ambassador Ellsworth Bunker. General Abrams and his civilian deputy were clear in their focus on pacification as the priority and ensured that military and civilian agencies worked closely together. Keen attention was given to the ultimate objective of serving the needs of the local populace. Success in meeting basic needs of the populace led, in turn, to improved intelligence that facilitated an assault on the Viet Cong political infrastructure. By early 1970, statistics indicated that 93 percent of South Vietnamese lived in "relatively secure" villages, an increase of almost 20 percent from the middle of 1968. By 1972, pacification had largely uprooted the insurgency from among the South Vietnamese population and forced the communists to rely more heavily on infiltrating conventional forces from North Vietnam and employing them in irregular and conventional operations.

In 1972, South Vietnamese forces operating with significant support from U.S. airpower defeated large-scale North Vietnamese conventional attacks. Unfortunately, a North Vietnamese conventional assault succeeded in 1975 after the withdrawal of U.S. forces, ending of U.S. air support, and curtailment of U.S. funding to South Vietnam.

Pacification, once it was integrated under CORDS, was generally led, planned, and executed well. CORDS was a successful synthesis of military and civilian efforts. It is a useful model to consider for other counterinsurgency operations.