For the past 40 years, the U.S. Government has been involved in the war against illegal drugs. The total direct and indirect cost of the illicit drug trade to the U.S. economy has been estimated to be approximately $200 billion annually. Despite the expenditure of nearly a trillion dollars and the involvement of multiple federal, state, and local government agencies, many argue that we are no better off, and some would say worse off, than what we were when we started. Further complicating the problem is that while each of the various agencies involved brings unique and complementary capabilities to the overall initiative, their efforts lack unity of purpose due to differences in priorities, authorities, and culture. In light of these grim facts, U.S. Joint Task Force North (JTF-N) has spearheaded an initiative to improve cooperation among the stakeholder agencies and change the approach to the war on drugs. Understanding that no one agency possesses all the required knowledge to solve this massive problem, JTF-N brought together over 20 government agencies in a series of facilitated workshops designed to enable the sharing of knowledge and lessons among participating agencies. Borrowing techniques from network analysis, Lean manufacturing, and operations research, JTF-N developed the Counter Transnational Organized Crime (C-TOC) Systems Analysis Framework (SAF) to elicit the insights of the assembled experts and create new knowledge about the domain. Through a series of large-group facilitated discussions and war-gaming, underpinned by the C-TOC SAF, the JTF-N team was able to incorporate participant insights into the framework in order to identify capability gaps, intelligence gaps, and opportunities to synchronize operations. This paper will describe the C-TOC SAF as well as the facilitation and war-gaming methods used to collaboratively develop alternative approaches to conduct counter drug operations and improve combined agency performance.