On February 6, 2007, the President directed the Secretary of Defense to  establish a new geographic combatant command to consolidate the  responsibility for DOD activities in Africa that have been shared by U.S.  Central Command, U.S. Pacific Command, and U.S. European Command. DOD Has Focused on Transferring Existing Activities from Other Commands to AFRICOM

Since the President announced the establishment of AFRICOM, DOD has  focused on building the capabilities necessary for AFRICOM to  systematically assume responsibility for all existing military missions,  activities, programs, and exercises in the area of responsibility it is  inheriting from the U.S. European, Central, and Pacific commands. DOD has approved 1,304 positions (military and DOD  civilian) for the command’s headquarters, of which about 270 military  positions are being transferred from other commands. By September 30,  2008, DOD plans to have filled 75 percent, or 980 of these positions. In  addition, DOD plans to have 13 command positions filled by  representatives from non-DOD agencies. For example, although DOD has not fully estimated the  additional costs of establishing and operating the command, AFRICOM  officials said that as the command is further developed and decisions are  made on its permanent headquarters, it will need to construct both  enduring facilities and meet other operational support requirements. In addition to DOD’s efforts to establish the combatant command, the  military services and Special Operations Command are also working to  establish component commands that will be subordinate to AFRICOM. According to AFRICOM, strategic success in Africa depends on  a whole-of-government approach to stability and security. By bringing  knowledge of their home agencies, personnel from other agencies, such as  the USAID and the departments of Treasury and Commerce, are expected  to improve the planning and execution of AFRICOM’s plans, programs,  and activities and to stimulate collaboration among U.S. government  agencies. Even with a reduction in the number of interagency positions, according  to DOD officials, some civilian agencies have limited personnel resources  and incompatible personnel systems that have not easily accommodated  DOD's intent to place interagency personnel in the command. With relatively few interagency  personnel on the AFRICOM staff, such coordination mechanisms could be  critical for the command to achieve its vision. Stakeholder Concerns Regarding the Command’s Mission

DOD’s second challenge to achieving its vision for AFRICOM is in  overcoming stakeholder concerns of the command’s mission. This could  limit its ability to develop key partnerships. Although DOD has often stated  that AFRICOM is intended to support, not lead, U.S. diplomatic and  development efforts in Africa, State Department officials expressed  concern that AFRICOM would become the lead for all U.S. government  activities in Africa, even though the U.S. embassy leads decision-making  on U.S. government non-combat activities conducted in that country. One factor contributing to persistent concerns among U.S. government  agencies, non governmental organizations, and African partners is the  evolution of how DOD has characterized AFRICOM’s unique mission and  goals. Uncertainty about DOD Presence in Africa

DOD has not yet reached agreement with the State Department and  potential host nations on the structure and location of AFRICOM’s  presence in Africa. DOD, however, has faced difficulty  reaching agreement with the State Department on AFRICOM’s future  presence on the continent. Therefore, AFRICOM will be based in Stuttgart,  Germany, for the foreseeable future and plans to focus on increasing its  representatives in embassies until decisions on the structure and location  of AFRICOM’s presence are made. Having such a command will likely help DOD  focus military efforts on the African continent, but the extent to which an  integrated approach is feasible remains unclear.
Why GAO Did This Study

In February 2007, the President announced the U. S. Africa Command (AFRICOM), a Department of Defense (DOD) geographic combatant command with a focus on strengthening U.S. security cooperation with Africa, creating opportunities to bolster the capabilities of African partners, and enhancing peace and security efforts on the continent through activities such as military training and support to other U.S. government agencies' efforts. DOD officials have emphasized that AFRICOM is designed to integrate DOD and non-DOD personnel into the command to stimulate greater coordination among U.S. government agencies to achieve a more whole-of-government approach. This testimony is based on the preliminary results of work GAO is conducting for the Subcommittee on the establishment of AFRICOM. GAO analyzed relevant documentation and obtained perspectives from the combatant commands, military services, Joint Staff, Department of State, USAID and non-governmental organizations. GAO plans to provide the Subcommittee with a report later this year that will include recommendations as appropriate. This testimony addresses (1) the status of DOD's efforts to establish and fund AFRICOM and (2) challenges that may hinder the command's ability to achieve interagency participation and a more integrated, whole-of-government approach to DOD activities in Africa.

What GAO Found

The Department of Defense has made progress in transferring activities, staffing the command, and establishing an interim headquarters for AFRICOM, but has not yet fully estimated the additional costs of establishing and operating the command. To date, AFRICOM's primary focus has been on assuming responsibility for existing DOD activities such as military exercises and humanitarian assistance programs, and DOD plans to have most of these activities transferred by October 1, 2008. DOD has approved 1,304 positions for the command's headquarters, and by October 1, 2008, plans to have filled about 75 percent, or 980 positions. Also, DOD plans to have 13 other positions filled by representatives from non-DOD organizations, such as the State Department. DOD is renovating facilities in Stuttgart, Germany, for interim headquarters and plans to use these facilities for the foreseeable future until decisions are made regarding the permanent AFRICOM headquarters location. The initial concept for AFRICOM, designed and developed by DOD, met resistance from within the U.S. government and African countries and contributed to several implementation challenges. First, DOD has had difficulties integrating interagency personnel in the command, which is critical to synchronizing DOD efforts with other U. S. government agencies. DOD continues to lower its estimate of the ultimate level of interagency participation in the command. According to DOD, other agencies have limited resources and personnel systems which have not easily accommodated DOD's intent to place interagency personnel in the command. Second, DOD has encountered concerns from civilian agencies and other stakeholders over the command's mission and goals. For example, State Department and U.S. Agency for International Development officials have expressed concerns that AFRICOM will become the lead for all U.S. efforts in Africa, rather than just DOD activities. If not addressed, these concerns could limit the command's ability to develop key partnerships. Third, DOD has not yet reached agreement with the State Department and potential host nations on the structure and location of the command's presence in Africa. Uncertainties related to AFRICOM's presence hinder DOD's ability to estimate future funding requirements for AFRICOM and raises questions about whether DOD's concept for developing enduring relationships on the continent can be achieved.