by hilzoy
While I was off being busy, I kept meaning to comment on the Blackwater story, but never found the time. It seems pretty clear to me that the main problem is not individual trigger-happy contractors but a larger structural point: the absence of any legal framework for holding contractors accountable*. This is something the administration and Congress could have and should have tried to remedy long before now, but even though Rep. David Price and Sen. Barack Obama introduced legislation to do this months ago, Congress has not yet acted**, and the administration seems to have had no interest in this question at all.
More importantly, though, the Blackwater episode makes it clear that whenever someone proposes privatizing something, we need to think hard about what privatization would mean in the specific case under discussion, rather than just assuming that privatization is good or bad, period. Privatization is not a one-size-fits-all solution to all our problems. I am all in favor of the private operation of, say, supermarkets, and if they were presently run by the government, I would be all for privatizing them. But introducing private soldiers into a war zone is a different matter entirely. They are not governed by the laws that govern the military. They do not have the same mission as the military, and when (for instance) the best way to ensure that a diplomat gets from point A to point B safely is to shoot anyone who gets in their way, they have no need to ask themselves whether this might run counter to America's overall strategy or interests. In this case, privatization seems like a straightforwardly bad idea.
To illustrate the importance of paying attention to the details, here's an excerpt from Betraying Our Troops: The Destructive Results of Privatizing War, by Dina Rasor and Robert Bauman. It's about how one rather important difference between private contractors and soldiers -- that private contractors can engage in work stoppages while soldiers cannot -- almost caused very serious problems for our troops. This is exactly the sort of detail that people ought to think about when they're asking whether or not some function should be privatized. Unfortunately, this administration seems to treat it as a given that privatization is a good thing no matter what. Here's how this attitude almost got out soldiers into serious trouble.
"The Army's logistics contract manager at the camp could not believe what he was hearing. A KBR manager reponsible for supplying the troops in this camp with fod, water, and all other services and supplies had just threatened to stop KBR's work at Camp Speicher -- to stop cooking and feeding the troops, to stop supplying the troops outside the base -- unless the Army paid KBR's submitted invoices.
Granted, his company, KBR, a subsidiary of Halliburton, was operating "at risk" by overrunning its budgeted spending and had been late in sending its invoices to the Army. And the Army was slow in paying becasue of its concerns over the accuracy of the company's invoices. Even so, the KBR manager had just threatened the Army brass that his employees were going to stay in their housing containers and do nothing until the money was paid. Essentially, this would amount to a work stoppage, or labor strike, on the battlefield -- perhaps the Army's biggest fear regarding the Pentagon's new experiment of having private contractors supply the basic needs of its troops on the battlefield.
The Army manager and his assistant wondered if KBR could really do this. If soldiers or officers tried to pull this same stunt in the old Army, the general would court-martial them, and they could be sent to prison. However, according to federal contracting rules, a company has the right to stop work if that company is risking a large amount of its own money and the government is unable to pay due to funding problems. Clearly, wartime conditions should be an exception when soldiers' lives are on the line, but there is no legal basis for a general to force a company's employees to work beyond the contracting rules. The company or its employees can stop work or go home, and there is nothing that military commanders can do about it, except seek drawn-out legal-contract remedies in the courts back in the United States.
The Army logistics contract manager and the camp's general officer faced the disaster of having to explain to their men, their superior officers, and the public that there might not be any food, water, or other vital supplies the next day because the Army didn't have a backup plan. Since the Army had outsources these traditionally Army-provided services to one company, they did not have any choice. The Army was short of troops, so there were no back-up soldiers to take on these tasks.
KBR ended up working the next day because the Army ultimately relented and agreed to come up with new money to pay its invoices. But this was not the first or last time the company would threaten the Army with work stoppages. It was like negotiating with the only plumber within a thousand miles when your basement is filling with water. KBR was in the driver's seat, and the company knew it."
Private contractors are subject to different legal requirements than soldiers, and they have different sets of incentives to do their jobs. A competent administration would consider, in each case, whether it made more sense to use private contractors or soldiers for a given function, rather than just assuming that the more privatization, the better. This is just one more reason why we should elect Presidents not on the basis of whether we would like to have a beer with them, or whether or not hey seem stiff or sigh audibly during debates, but whether or not they would appoint competent people who will do their jobs well, and who will bring experience and wisdom to their work. I very much hope that we have learned this lesson, since our troops, not to mention the citizens of Iraq, depend on it.
***
UPDATES:
* As various commenters pointed out, the claim that there is no legal framework for holding contractors accountable overstates the case. In fact, there are several overlapping, and possibly conflicting, legal frameworks that might or might not be applicable in various cases, but that have not been widely used, and that seem in any case to leave some rather large areas uncovered or at least ambiguous. See here, here, here, and here for good summaries. (The last one is from 2004, so it's a bit dated.) (h/t kcindc, kcindc, Gary Farber, and katherine.)
Not that it matters to the perpetrators of the September 16 shootings, since the State Department seems to have given them immunity.
** As Nell pointed out, the House has passed Rep. Price's legislation.
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