Convergence and the CT Return on Investment: A Framework

Abstract: Since 2018, the United States has been trying to figure out what counterterrorism looks like during an era of strategic competition, and how it can maximize and optimize returns from its counterterrorism investments. There are important differences between these two national security priorities—strategic competition and counterterrorism—but if the United States wants to gain resource efficiencies, it should look across the gray space at how and where these two priorities interplay and converge. This is because a key part of the pathway to CT optimization lies in realizing how counterterrorism has evolved as a form of influence. This article introduces a conceptual framework to help the counterterrorism community situate the returns from CT investments, especially deployed CT force activity. It recommends that those returns be understood through two lenses: 1) those that are direct and oriented around threat mitigation and 2) those that are intersectional and oriented around influence. Interviews with three experts provide context to elements of the framework and highlight the interplay between counterterrorism and strategic competition in different regional areas.