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News from the Front:

Joint Force Land Component Command

DIGITAL VERSION AVAILABLE

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from the CALL website: https://call.army.mil

Reproduction of this publication is welcomed and highly encouraged.

NEWS FROM THE FRONT

Robert F. Pike, Jr., U.S. Army LNO to CAA and U.S. Army South CAA Program Specialist 

P. Keith Warman, CALL Military Analyst (Forward) at Fort Sam Houston

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May 2019

San Antonio, Texas

4-8 February 2019

Conference of American Armies

Countering Threat Networks
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Telemachus, U.S. Army South G3 Exercise Division, Video Information (VI).
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Conference of American Armies

Specialized Conference on Countering Threat Networks

Overview

The Conference of American Armies (CAA) is a military organization made up and led 

by armies from the American continents with the authorization of their respective 

countries. Currently, there are 22 member armies, including: Antigua & Barbuda, 

Argentina, Barbados, Bolivia, Brazil, Canada, Chile, Colombia, Dominican Republic, 

Ecuador, El Salvador, Guatemala, Honduras, Jamaica, Mexico, Nicaragua, Paraguay, 

Peru, Trinidad & Tobago, United States, Uruguay, and Venezuela. Additionally, there 

are four observer armies, including: Belize, Guyana, Suriname, and Spain. 

The CAA conducts a two-year cycle of specialized conferences and exercises hosted by 

different member armies. During this XXXIII Cycle of the CAA, 2018-2019, the U.S. 

Army conducted the specialized conference on Military Support to Countering Threat 

Networks (CTN) at San Antonio, TX from 4-8 February 2019. The main objective 

focused on exchanging information on CTN and strengthening relationships among the 

CAA member armies. All of the twenty-six member and observer armies, with the 

exception of Venezuela and Nicaragua, were invited to participate. There were 16

participants, including: Argentina, Barbados, Brazil, Canada, Chile, Colombia, 

Dominican Republic, El Salvador, Guatemala, Honduras, Jamaica, Mexico, Peru, Spain, 

United States, Uruguay, and the Inter-American Defense Board.

Major General (MG) Mark R. Stammer, U.S. Army South Commander chaired the event 

with support from the CAA Permanent Executive Secretariat (PESCAA), hosted by the

 

 

MG Mark R. Stammer, U.S. Army South Commander at plenary session
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Dominican Army, and led by Brigadier General (BG) Luis Francisco De León, the CAA 

Secretary General.

Purpose

The purpose of this event was to fulfill the overall goals approved by the CAA Army 

Commanders during the CAA Commanders Conference hosted by General (GEN) Mark 

A. Milley, U.S. Army Chief of Staff, in Washington D.C., in November 2017, which 

included:

• Conduct a realistic threat assessment to determine how the CAA member armies 

can provide military support to civil authorities to confront transregional, 

transnational threat networks (drug trafficking, terrorism, transnational organized 

crime, arms trafficking, and human trafficking).

• Share tactics, techniques, and procedures in operations, training, and exercises 

to strengthen leadership, readiness, and interoperability among military and 

civilian security forces in the region.

Plenary Sessions

Subject matter experts were invited to deliver presentations on CTN background 

information that contribute to the CTN fight. The selected plenary session speakers 

were chosen based on their background, experience, and forward vision on subjects 

rendered and included:

• GEN Carlos Osvaldo Ospina, former Commander of the Colombian Armed 

Forces and currently a professor at the U.S. National Defense University (NDU), 

delivered a keynote address on the “Whole of Government Approach to CTN.”

• Dr. Craig Deare, also from NDU, offered his perspective on “Networks in the 

Operational Environment” and “The Threat Network Construct.” 

• Mr. Cesar Gonzalez, from U.S. Southern Command (SOUTHCOM) Network 

Engagement Team presented information on “Planning to Counter Threat 

Networks.”

• Major Santa Humberto Cruz Sosa, from the Army of El Salvador, briefed on the 

current situation in his country which illuminated the topic “Activities to Counter 

Threat Networks.” 

• Mr. Nathan Menkevich, from SOUTHCOM J38 Joint Cyber Center, introduced 

the concept of cyber-defense to the CAA community in a presentation on “Cyber 

Security Fundamentals” to shape the next CAA cycle towards potentially looking 

at cyber security in greater depth.
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Four of the presentations were deliberately designed to provide background information 

and illuminate the delegates’ discussion of the four chapters in the draft CAA Guide to 

Countering Threat Networks as indicated below. This draft was the primary deliverable 

of the conference. 

• Chapter 1: Networks in the Operational Environment.

• Chapter 2: Threat Network Construct.

• Chapter 3: Planning to Counter Threat Networks.

• Chapter 4: Activities to Counter Threat Networks.

The subject matter experts made themselves available to assist members of the 

working groups by clarifying issues and providing their personal experiences as well as 

more detailed information on topics as required.

The presentation on “Cyber Security Fundamentals” was introduced to the CAA 

community to determine whether it may be a subject for future CAA initiatives. 

Moreover, whether it be an entire two-year cycle dedicated to this theme, or just one 

specialized conference to develop the concept and gauge the needs of the CAA armies. 

This proved to be a well-received topic generating discussion indicating it is worthy of 

further consideration during the next CAA cycle to be hosted by Argentina in 2020-2021. 

The presenter from SOUTHCOM J38 Joint Cyber Security Center also offered to do a 

cyber vulnerability assessment of the CAA’s Geographical Information System (GISCAA) developed and refined by the member armies from commercial off-the-shelf 

software over the past several cycles.

Working Groups

After the morning plenary sessions, delegates were divided into three working groups

(WG): WG1- Threat Assessment, WG 2 - Interoperability, and WG 3 - Whole of 

Government. Members examined and deliberated from these three perspectives on 

assigned tasks during the afternoons of 5 and 6 April. The delegates reviewed, 

collaborated, and refined three draft practical documents as outputs of this conference, 

including:

• CAA Guide to CTN (based on U.S. Joint Publication 3-25, Countering CTN, 21 

Dec 2016).

• CAA Interoperability Matrix (based on U.S. Army interoperability community of 

interest matrix).

• Redesigned graphic illustrating network aspects of CAA threats and risks 

(building on a Chilean graphic from the CAA Ad Hoc meeting on emerging 

threats in Nov 2018).
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Conference Agenda

WG 1 Threat Assessment WG 2 Interoperability WG 3 Whole of Government

5 Feb

0800-1200

Keynote Address: “Whole of Government Approach to CTN” GEN Ospina

SME 1: “Networks in the Operational Environment” Dr. Craig Deare, NDU

SME 2: “The Threat Network Construct” Dr. Craig Deare, NDU

5 Feb 

1330-1530

2 hours

Evaluate Chilean Product 

and Draft Graphic:

ID Nodes & Links

- Define concept of 

interoperability in terms of 

CTN.

- ID the obstacles / shortages 

that prevent the creation of 

interoperability.

- What is the desired end 

state?

- Evaluate Draft 

Interoperability Matrix.

- Define concept of Unified 

Action in terms of CTN.

- ID the obstacles / shortages that 

prevent the creation of Unified 

Action.

- What is the desired end state?

- Evaluate Draft Interoperability 

Matrix – can it be used in Unified 

Action realm?

5 Feb 

1545-1730

1 hour 45 min

CHAPTER II “The Threat 

Network Construct”

4 pages

CHAPTER III “Networks in the 

OE”

5 pages

Annex A “Social Network 

Analysis”

5 pages

6 Feb

0800 - 1200

SME 3: “Planning to Counter Threat Networks”, SOUTHCOM NET - TBD

SME 4: “Activities to Counter Threat Networks”, Salvadoran Army SME

SME 5: “Cyber Security Fundamentals” – SC J38 Joint Cyber Center 

6 Feb

1315-1515

2 hours

CHAPTER IV “Planning To 

Counter Threat Networks

9 pages

CHAPTER I “Introduction” 

and Annex B “Glossary”

5 pages

CHAPTER V “Activities to Counter 

Threat Networks” 

6 pages

6 Feb

1530-1730

2 hours

Continue Work in Working Groups

Develop Conclusions & Recommendations

7 Feb

0815-0945

Present Conclusions and 

Recommendations

(0815-0845)

Present Conclusions and 

Recommendations

(0845-0915)

Present Conclusions and 

Recommendations

(0915-0945)

0945-1000 Coffee Break

1000-1200 Refine Conclusions and Recommendations

1200-1300 Lunch / Prep Draft Accords for Signature

1300-1345

1415-2300

Closing Ceremony: Minutes Signing / Presentation of Diplomas / Gift Exchange

Cultural Event/International Reception/Dinner
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CAA Guide to Countering Threat Networks 

The initial draft of the CAA Guide to (CTN) is based on U.S. Joint Publication 3-25, 

CTN. Delegates review of this joint publication was simplified by eliminating U.S.-

specific content relating to the U.S. Central Command area of responsibility (AOR) and 

some of the more highly technical details. This made it more easily understood by 

partner nation planners when extracting concepts for developing the draft CAA Guide. 

Conference attendees continued to build on a common vision of threats in the region. 

This has been discussed in the CAA forum over the past four CAA cycles.

Each of the WGs were assigned a portion of the draft CAA guide to review and provide 

input on. Their analysis and comments significantly improved the quality of the 

document. All products are designed to have common processes, procedures, and 

terminology. The intent is to leverage these documents to promote further discussion on 

interoperability and what it means in the Western Hemisphere.

 

 Cover of First Draft, CAA Guide to Countering Threat Networks
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Once completed, the initial draft was translated to Spanish and Portuguese and 

distributed to the CAA armies six weeks prior to the conference for their review. In 

addition to sharing the most important concepts of the original doctrinal publication, a 

critical part of this initiative is developing consensus on the correct translation of these 

terms and concepts. The Spanish language tends to take on many idiosyncrasies 

among the countries of Central and South America. Ultimately, sharing doctrinal 

concepts and terminology in a commonly agreed upon translation will improve 

interoperability and enhance our ability to work with partner nation security forces and 

interagency partners. The process of staffing and refining the draft, both during the 

conference and afterwards in collaborative efforts, has great value. It gives our partners 

a sense of ownership of the final product and benefits the U.S. Army by considering 

other perspectives in developing the final product.

Measuring Interoperability 

Interoperability is often discussed as an important goal to be achieved with our partner 

nations’ security forces; however, it is often a rather elusive concept that is difficult to 

define and assess. The U.S. Army’s interoperability community of interest developed 

the below matrix to quantify and measure levels of interoperability. It served as a good 

starting point for the CAA in attempting to quantify and measure interoperability among 

member armies.

Interoperability Matrix
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Agreeing to a commonly understood translation of the terminology in the interoperability 

matrix is a large part of this initiative. Of note, some concepts and terms commonly 

used in the U.S. military do not always have a standard internationally accepted 

translation. For example, the word “de-conflicted.” A great deal of time and effort was 

spent during the conference grappling with the correct meaning of this one word. 

However, it proved absolutely key to making the matrix understood by all. In the first 

draft presented to the delegates, the U.S. Army South translators used the word 

“coexistente” or “co-existing” in English. The delegates did not feel this term captured 

the nuances of “de-conflicted.” After extensive debate, opted for the term “sin conflicto” 

or “without conflict” in English to better express the concept.

The draft matrix, widely accepted as a valid tool by most delegates, also elicited ideas in 

improving its use to confront the unique challenges faced within the SOUTHCOM AOR. 

In terms of CTN operations, working group 2 identified four obstacles to interoperability, 

including:

• Legal framework of each country.

• Technical obstacles – communications, intelligence, technological systems, and 

lack of systems integration.

• Human obstacles – lack of confidence, political influence, leadership, language, 

and organizational culture.

• Procedural obstacles – lack of common terminology, processes, and rules of 

engagement.

 

WG #2 in Session
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Delegates recommend the matrix consider the following actions to address known 

interoperability obstacles:

• Human. Develop and train personnel at all levels. Conduct planning, table top 

exercises without troops, and simulations. Establish, maintain, and expand the 

inter-agency contacts network. Select liaison officers who are well integrated 

across the program. Use interpreters and/or communications facilitators (more 

than interpreters).

• Technical. Exchange technology. Leverage common communications, logistics,

mobility, compatible weapons systems, shared/compatible data bases, mapping, 

and simulators. 

• Procedural. Strengthen information exchange channels, implement multinational 

exercises, and establish a common protocol.

Common Desired End state for CAA Interoperability 

WG 3 also contributed by developing an agreed upon definition of the term unified 

action as applied to CTN that will be incorporated into the CAA CTN Guide.

All of this valuable input will be used to expand the draft matrix and make it a product 

that is truly worthy of consideration by the army commanders of the Western 

Hemisphere. This matrix may also be included as an annex to the draft CAA CTN 

Guide.

To dissuade / disable potential threats and/or have 

the capacity to respond more effectively, individually 

or with support from other countries to the threats, 

in order to increase the strength of the forces with 

the aim of promoting regional stability.
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Common Desired End state for CAA Unified Action 

Threats Consensus

Within the CAA, developing consensus concerning the threats faced by the 25 armies in 

the Western Hemisphere has been a long-term challenge since the fall of the Berlin 

Wall in 1989. Born as an instrument of the Cold War, the CAA has struggled for 30

years to find a suitable replacement for communism as its common focus. 

Peacekeeping and disaster response operations served as that focal point for several 

cycles. However, the emerging challenges in the hemisphere can no longer be ignored.

Until recently, many nations saw terrorism, weapons of mass destruction, transnational 

criminal organizations and their illicit trafficking of drugs, arms, persons, money, and 

other contraband as primarily a problem for the United States. 

At the conclusion of the 30th CAA Cycle, led by Mexico in 2012-2013, the army 

commanders signed an accord recognizing 17 threats affecting all of the nations of the 

Western Hemisphere. This was very significant because the list included terrorism, 

transnational criminal organizations, the illicit trafficking of drugs, arms, and persons, 

money-laundering, and weapons of mass destruction as common threats to all. But, it 

proved very difficult to use such a long list of threats effectively within the organization.

Therefore, during the 31st CAA Cycle, led by Colombia in 2014-2015, attempts were 

made to prioritize the list and to focus on what was most important to the organization 

as a whole. This effort resulted in a decision placing transnational criminal organizations 

and their illicit trafficking of drugs, arms, and persons at the top of the list.

One of the greatest challenges in the CAA is building a consensus among 25 diverse 

armies, proven to be the case in developing a common vision of the threat. Each army 

must work within its own constitutional and legal framework. This often limits the types 

of missions it may assume. For this reason, some armies are left feeling uncomfortable 

with the prioritization of the threats because they are unable to legally address those 

threats considered to be a top priority. In several countries, their legal framework makes 

law enforcement agencies responsible for these threats which severely limits the armed 

forces’ ability to provide direct support in this area.

 

Unified action is the coordinated employment of all 

the resources of a state, or an alliance with other 

states of the region, aimed at countering 

Transnational Criminal Organizations and the 

networks that threaten and attempt against the 

security and stability of countries.
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Therefore, at the conclusion of the 32nd Cycle, 2016-2017, the Army of Chile 

volunteered to host an Ad Hoc committee meeting to further study this question during 

the 33rd Cycle. This meeting, held in November 2018, removed the prioritization, but it 

made progress by creating a more manageable list by separating the list into two 

categories of “Threats” and “Risks” represented in the graphic shown below.

 Chilean Threat Graphic

During this conference, WG1 was assigned the task to build on the product developed 

in Chile by attempting to highlight threat network aspects. They produced the updated 

CTN threat graphic below. Their work once again demonstrated the challenges 

associated with building a consensus on such a sensitive topic. Nevertheless, their 

results further framed essential issues and connections. In terms of CTN concepts, the

graphic identifies threat actors as key nodes in the network construct and threat 

activities as links.
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CTN Conference Threat Graphic

 

Way Ahead

The U.S. Army South will continue to lead, collaborate, and work on these draft 

products after the conference. Intent is to prepare them for review and refinement 

during the CAA Preparatory Conference hosted by the Dominican Republic in August 

2019. Afterward, they will be presented to the army commanders at the CAA 

Commanders Conference, in November 2019, for their approval and use by respective 

armies. 

This conference enhanced the CAA’s primary goals of sharing information and 

strengthening relationships among the member armies. Through professional 

interchanges, during both the formal conference and social events, delegates departed 

with a better understanding of CTN concepts and terminology. Additionally, all 

attendees acknowledged appreciation of the warm hospitality for which San Antonio and 

U.S. Army South are so very well known.
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MG Mark R. Stammer, U.S. Army South Commander and BG Luis DeLeon, 33rd

Cycle, CAA Secretary General from the Army of the Dominican Republic signing

the conference accords document
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