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Challenges to Coalition Operations

Col (Ret) Peter LeentjesCenter of Excellence inDisaster Management and Humanitarian Assistance

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Introduction

We have heard a lot about the We have heard a lot about the global coalitionsglobal coalitions

Need to examine and Need to examine and understand what this meansunderstand what this means

Particularly important for the Particularly important for the militarymilitary

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AIM

What are coalitions (particularly What are coalitions (particularly those that might support those that might support Peace/CT operations)Peace/CT operations)

Key issues in Coalition Key issues in Coalition OperationsOperations

Lessons LearnedLessons Learned Interoperability in coalitionsInteroperability in coalitions Guidelines for Future Coalition Guidelines for Future Coalition

operationsoperations

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Global Coalition Against Terrorism Terrorism declared a threat to Terrorism declared a threat to

“International Peace and Security”“International Peace and Security” 162 Nations have supported the UN 162 Nations have supported the UN

resolution on terrorismresolution on terrorism 20 or more Nations have participated 20 or more Nations have participated

militarily in the operation in Afghanistanmilitarily in the operation in Afghanistan 48 countries provided indirect support to 48 countries provided indirect support to

operations including:operations including:– IntelligenceIntelligence– Over flight rightsOver flight rights– BasingBasing

This is unprecedented but is it a coalition?This is unprecedented but is it a coalition?

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Coalitions in Peace/CT Operations

Defined as a temporary Defined as a temporary combination of parties that combination of parties that retain distinctive principlesretain distinctive principles

Coalitions for Peace/CT Coalitions for Peace/CT operations need to be:operations need to be:– Broadly basedBroadly based– Capable of operating on many frontsCapable of operating on many fronts– Able to assume risksAble to assume risks– Involve unprecedented cooperationInvolve unprecedented cooperation

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International Coalitions Political Coalitions Political Coalitions (UN, EU, ASEAN, AC Conference (UN, EU, ASEAN, AC Conference

of Islamic Nations)of Islamic Nations) Permanent Military Coalitions Permanent Military Coalitions (NATO)(NATO)

Temporary Military Coalitions Temporary Military Coalitions (UN PKOs, Gulf (UN PKOs, Gulf War, Afghanistan)War, Afghanistan)

Humanitarian Coalitions Humanitarian Coalitions (Red Cross, UNHCR)(Red Cross, UNHCR)

Trans-National Coalitions Trans-National Coalitions (Interpol)(Interpol)

– Anti drugAnti drug– Trans national crimeTrans national crime– Border securityBorder security

Economic/Financial/ Development Economic/Financial/ Development Coalitions Coalitions (UNDP, SADC, APEC)(UNDP, SADC, APEC)

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To Fight Terrorism Will need a broad base of all these coalitionsWill need a broad base of all these coalitions Key will be the:Key will be the:

– Political Coalitions – to provide the prolonged Political Coalitions – to provide the prolonged international support to the war on terrorinternational support to the war on terror

– Military Coalitions – to provide capacity when Military Coalitions – to provide capacity when needed to take appropriate actionneeded to take appropriate action

– Economic coalitions – to deal with the financial Economic coalitions – to deal with the financial sanctions intended to cut off support to terrorismsanctions intended to cut off support to terrorism

– Trans-national coalitions – to limit cross border Trans-national coalitions – to limit cross border criminal activities that contribute to terrorismcriminal activities that contribute to terrorism

Examine the issues surrounding the Examine the issues surrounding the development and operations of the Military development and operations of the Military coalition of the willingcoalition of the willing

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Military Coalitions

Permanent CoalitionsPermanent Coalitions– Alliances such as NATO which have a Alliances such as NATO which have a

treaty based series of agreed treaty based series of agreed missions, such as collective defense missions, such as collective defense of its membersof its members

Coalitions of the willing (MNF)Coalitions of the willing (MNF)– Nations who come together to deal Nations who come together to deal

with a specific issue, generally based with a specific issue, generally based on an agreed mission, limited time on an agreed mission, limited time duration and a limited geographical duration and a limited geographical area of operationsarea of operations

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Coalition Features Supported by a UN Resolution Supported by a UN Resolution

provides legitimacy for interventionprovides legitimacy for intervention Provides authority for use of forceProvides authority for use of force Establishes International Establishes International

CredibilityCredibility Generates International & Regional Generates International & Regional

SupportSupport Spreads the Cost Burdens of Spreads the Cost Burdens of

InterventionIntervention

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Problems of Coalition Participation

Added complexity of combined operationsAdded complexity of combined operations Cumbersome network of military commandCumbersome network of military command National command issues create difficultiesNational command issues create difficulties Generally exceeds span of controlGenerally exceeds span of control Decision making is slowDecision making is slow Consensus creation takes timeConsensus creation takes time Standards of force capability & levels of Standards of force capability & levels of

military training varymilitary training vary Differences in language, tradition, doctrine Differences in language, tradition, doctrine

& culture impact on operations& culture impact on operations

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COALITIONSCOMPRESSED OPERATING ENVIRONMENT

STRATEGIC

OPERATIONAL

TACTICAL

The compression may not simply be vertical

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Criteria for Success

A Coalition force needs military A Coalition force needs military capabilities to succeedcapabilities to succeed

An effective capability to conduct An effective capability to conduct civil-military relationscivil-military relations

Cannot substitute for:Cannot substitute for:– Adequate force structureAdequate force structure– Personnel with training and experiencePersonnel with training and experience– Intelligence capacityIntelligence capacity– Capacity for planning and coordinationCapacity for planning and coordination– Communications systemsCommunications systems

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Keeping It Simple Watchword in coalition operations – difficult to Watchword in coalition operations – difficult to

achieveachieve Levels of sophistication in of weapons, training, Levels of sophistication in of weapons, training,

communications, language & technical aspects communications, language & technical aspects may differmay differ

Use a combination of tools:Use a combination of tools:– Assign geographical & functional responsibilitiesAssign geographical & functional responsibilities– Assign forces together that have a history of working Assign forces together that have a history of working

togethertogether– Use mission assignments that task to capacitiesUse mission assignments that task to capacities– Be sensitive so that home governments are receptiveBe sensitive so that home governments are receptive

Making simple plans within a coalition requires Making simple plans within a coalition requires sophisticated and complex decision making and sophisticated and complex decision making and coordinationcoordination

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When There Is a Lack of Confidence in Coalition Leadership

Forces assigned to the coalition Forces assigned to the coalition will:will:– Operate under a variety of Operate under a variety of

national employment restrictionsnational employment restrictions– Maintain direct contact with Maintain direct contact with

national governments for directionnational governments for direction– Negotiate missions; not accept Negotiate missions; not accept

assigned onesassigned ones

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LEAD NATION CONCEPT Offers a solution to problems that exist within UN Offers a solution to problems that exist within UN

operationsoperations Generates political will, rapid deployment, consistent Generates political will, rapid deployment, consistent

planningplanning Offers a common base of doctrine which can be Offers a common base of doctrine which can be

adopted or adapted by participating nationsadopted or adapted by participating nations Capable of operating in a higher risk environmentCapable of operating in a higher risk environment Unity of command is better, with a lead nation Unity of command is better, with a lead nation

commandercommander Regional power’s national interests may not make Regional power’s national interests may not make

them ideal lead nations. Internationalization is them ideal lead nations. Internationalization is importantimportant

Very few nations have the capacity to be a lead nation, Very few nations have the capacity to be a lead nation, without extensive strategic lift and logistics supportwithout extensive strategic lift and logistics support

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INTEROPERABILITY IN COALITION

OPERATIONS Interoperability in coalition operations is

more focused on human interaction than technological compatibility.

Multi-lateral coordination and cooperation in training, seminars and exercises are excellent tools to enhance interoperability.

Interaction builds trust & comprehension, common understanding and develops habitual working relationships.

Interaction needs to take place at all levels from the strategic to the tactical

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DOCTRINE IN COUNTER TERRORISM OPERATIONS

Doctrine is a key aspect of interoperabilityDoctrine is a key aspect of interoperability A comprehensive doctrine may not be A comprehensive doctrine may not be

possible or wisepossible or wise Guidance for nations should include:Guidance for nations should include:

– PhilosophyPhilosophy– PrinciplesPrinciples– Terminology and definitionsTerminology and definitions– Guidance on key issues like Use of Force (ROE)Guidance on key issues like Use of Force (ROE)– Common operating proceduresCommon operating procedures

Additional guidance will be needed to Additional guidance will be needed to support each Peace/CT operationsupport each Peace/CT operation

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KEY ASPECTS OF INTEROPERABILITY

Human InteractionHuman Interaction DoctrineDoctrine Training standardsTraining standards Guidance for use of force and Guidance for use of force and

ROEROE Civil military operationsCivil military operations Common logistical acquisition Common logistical acquisition

strategiesstrategies

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Guidelines for Coalition Operations

Military Plans & Operations need Military Plans & Operations need to be segregated from but to be segregated from but informed by the other activities informed by the other activities associated with the Operationassociated with the Operation• Political, humanitarian, police, Political, humanitarian, police,

nationalnational• Rich set of command arrangements in Rich set of command arrangements in

addition to the operational military Caddition to the operational military C22 is requiredis required

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Guidelines for Coalition Operations

• Military activities need to be controlled at the Adaptive level•Potential actions need to be

coordinated early•Contingency plans triggered by

patterns of action•Standards for equipment and

doctrine created to facilitate real time action

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Guidelines for Coalition Operations

• Command Arrangements & C2 must operate effectively•Functional communications

systems•Exchange of information•Exchange of liaison

personnel•Open meetings of all entities• Information exchange

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Guidelines for Coalition Operations

• Time-Tested approaches and Techniques should be used to simplify the Coalition Operation•Assignment of missions based on

capability•Assignment of separate physical

space•Use of coordination teams• Exchange of liaison officers•Create informal communications

networks•Use mission type orders

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Guidelines for Coalition Operations

• Principles of Counter Terrorism operations differ and need to be balanced at the strategic, operational and tactical levels•Unity of effort•Consensus planning•Simplicity •Adaptive control•Transparency of operations (to

participating Nations)

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Guidelines for Coalition Operations

• Provide each Level of Command with appropriate capacity•Qualified personnel•Experience•Linkages• Information handling capacity• Information technology•Translators•Liaison personnel

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Guidelines for Coalition Operations

• Limit the Number of Subordinate Organizations reporting to Key Commanders•Group smaller participants

under a regional commander

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Guidelines for Coalition Operations

• Mission Oriented Directives support the Decentralized Nature of Operations•Based on contingency plans•Previously agreed courses of

action

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Guidelines for Coalition Operations

• Make Investments prior to participation•Standards for all aspects of

Peace/CT operations•Development of doctrine

(international)•Conduct seminars, war games and

exercises•Create systems to exchange

information between agencies•Develop contingency plans as

guidelines•Develop valid and reliable

assessment tools