CGS bollocked us last week. As bollockings went it wasn’t too bad; I have had better – (Graeme Lamb was a master at communicating rage through the medium of paper, albeit the paper often had puncture wounds), and I have had worse. I agreed entirely with the sentiments, but do wonder about the things unsaid.
On Twitter some have commented as to whether the it was addressed fairly or unfairly, while across at The Wavell Room, David Calder (@drjcalder81) in my opinion came closest to hitting the mark. But hitting the mark on what?
CGS’s 3.5 minutes of steely eyed ire was based on allegations of sexual assault carried out by soldiers on a soldier. Clearly if proven this would be a significant breach of the Army’s Values and Standards, and in particular ‘Respect for Others’.
CGS mentioned “Values and Standards”, an “honest sense of decency” and that a “higher level of behaviour” is expected of us. But in considering the allegations I am struck by the fact that from the society we are drawn, and to society we will return.
One of the contributing factors in the background of many sexual assaults is exposure to pornography. Pornography with its objectification of people as a means (vehicle) to an end (sexual satisfaction) and not as an end in themselves, would seem to be the antithesis of the Army’s Values and standards. I have written before about pornography, and that a society that accepts pornography such as ours does, should not be surprised when members of society increasingly behave in a manner that has been socialised as acceptable through pornography. The fact that pornography is acceptable and that the yet the behaviour is unacceptable, is one of the many contradictions in our society. This contradiction of society is mirrored within the British Army, we preach respect for others and yet fail to condemn pornography.
“Social cohesion and individual liberty, like religion and science, are in a state of conflict or uneasy compromise throughout the whole period.”
I want to encourage us, the military, to think both broader and deeper. We spend much time and effort thinking about Hybrid Warfare and Information Confrontation; we recognise too that the character of war is changing in composition and balance from the kinetic to the cognitive. We spill ink more freely than blood on the Somme, in talking about AI, PME and Mission Command. We discuss all these and recognise intuitively that the character of war reflects the character of the societies waging war, indeed war is a social mechanism. Information confrontation too, seeks to exploit the fissures in our societies and we are faced with the strategic implications of this daily, and yet how much time and effort do we spend looking at ourselves? How much time do we spend considering the strategic implications of our evolving sociology?
“To understand an age or a nation, we must understand its philosophy, and to understand its philosophy we must ourselves be in some degree philosophers. There is here a reciprocal causation: the circumstances of men’s lives do much to determine their philosophy, but, conversely, their philosophy does much to determine their circumstances.”
The quotes in bold were all taken from the introduction to Bertrand Russell’s seminal work ‘The History of Western Philosophy”. Many may discount the relevance of philosophy to the profession of arms, but as we consider CGS’s exhortation to do better by ourselves, we should take a moment to consider what tools we have to see ourselves for what we are. Philosophy gives us many of these tools. Lastly, and with a nod at PME and Mission Command, consider this:
“To teach how to live without certainty, and yet without being paralysed by hesitation, is perhaps the chief thing that philosophy, in our age, can still do for those who study it.”
Up front I will say that I agree with Barney in his post that I would like to see increased PME opportunities across all ranks, and especially for non-commissioned soldiers; but the devil is in the detail and in the spirit of Scharnhorst’s Militarische Gesellschaft I would like to challenge some of his assumptions and provide some fuel to the debate on Twitter.
It seems to me that the basic argument being made in the post is:
The character of war has changed fundamentally, with increased precision and lethality.
Increased precision and lethality demand greater dispersion and therefore use of initiative across all ranks.
Initiative is not latent, but taught through education and training.
SNCOs therefore need to be as educated as their officer counterparts at every level of command.
It is undeniable that the character of war has changed, but arguably not yet the nature. The character of conflict has changed because the character directly reflects the character of the societies engaged in conflict and their commitment to the fight. I agree that precision and lethality are indicative of a changing character of warfare as applied by the West, but would simply caution that to my mind, the primary drivers of a changing character of war are human factors and not technological.
Has the character has changed to such an extent that the role of soldiers has changed fundamentally. I would disagree with this. From my particular foxhole I would note that the job of my SNCOs commanding multiples and patrol bases in N Ireland in the early 1990s was not radically dissimilar to the role they played in Helmand in 2011/12. They controlled a broader range of assets, the fight was more intense, but a multiple commander in 1993 would have grasped immediately the fundamentals of commanding a small PB in 2011 and the range of assets employed was broadly similar (although to be fair, we used fewer RAF fast jets in Northern Ireland then some might have wanted). Indeed when I think of increased dispersion and lethality, I think of the lessons of the Boer War, and the demands placed on combat arm SNCOs in the Edwardian Army (see Spencer Jones’ excellent book ‘From Boer War To World War: Tactical Reform Of The British Army, 1902-1914‘), and despite the changes and reforms here, the roles of SNCOs did not change fundamentally.
Herein lies the nub of the problem. I think we are conflating two separate issues in the debates we are having. The first I see is: what is the correct form of professional education needed to equip the soldiers of today for the fight of today and tomorrow? This is the debate we are having. The debate we are not having however, is what is the role of the soldier (Other Ranks) in today’s fight and tomorrow’s wars and then how best should they be educated to enable this? The form of soldiers’ PME should follow on naturally from the function that the fulfill.
Sowhat is the role of SNCOs on today’s and, more importantly, tomorrow’s battlefield? Barney’s post cites both Matthew Reed’s excellent WOTR contribution on SNCO PME and the experience of the German Reichswehr in the inter-war period as pointers for the requirement. Reed’s article focuses on the role and education of US SNCOs, and in particular looks at how to prepare Other Ranks for Command Sergeant Major appointments. Currently a command sergeant major, at any level and whether British or American, is an advisor and doesn’t not have any direct command authority vested in the appointment. It seems intuitive to me, that the quality of any advice given will reflect both on the capability and experience of the individual, and on the education and training they have received. So there is definitely an argument to be had that SNCOs should be educated to the same level as their corresponding commissioned command cohort. If we expect our SNCOs to act as advisors at increasingly senior levels of command, then we should educate them effectively to carry out that role. My experience of US command sergeant majors is that they ‘stay in lane’ with the advice they give, limiting themselves largely to training and battlefield discipline and acting as the Commanding General’s additional eyes and ears for battlefield circulation and allowing him to gain a better Fingerspitzengefühl for the battlefield. The question to ask is, if as Matthew Reed suggests, SNCO education was changed, would SNCOs be used more as a senior General Staff advisor capable of giving operational and strategic advice?
Here I note that the role of the US SNCO corps differs from that of the British military’s in that’s they have very clearly defined training responsibilities. We have introduced command sergeant majors in the British Army, but we have not fundamentally changed the role of our SNCO corps, we have adopted the form but not the function of the US system; this is worthy of debate in itself. Have we missed an opportunity?
The other example cited in Barney’s post was that of the interwar German Reichswehr. This is an interesting example in a number of regards. The German Reichswehr did not possess Command Sergeant Majors as we recognise them, but SNCOs were common as platoon/troop commanders and trained to do that role. German training was geared towards enabling the tactical commander to operate one up (unlike British training which is geared towards understanding the tactical context one up, but not operating a technique that level) for sound strategic and tactical reasons. Strategically, the Reichswehr anticipated to expand in wartime and this investment in Human Resources gave them this ability to do so rapidly. Tactically this meant that not only were tactical commanders cognisant of their tactically environment one up, they were competent in it too, and could step up as the situation (and casualties) demanded. It was a necessary precondition for the German practice of Mission Command.
Strategically, I do not see the same imperative or capability for expansion in the British Army as there’s existed in the Reichswehr, not least because of our lack of a defence industrial base or warmaintenancereserve. No one has yet managed to satisfactorily explain to me how a British Army could rapidly expand and equip… Tactically the imperative remains, and I have been singularly disappointed throughout my career, by our unwillingness to resource training to allow our people to operate competently one up. A recent article on Nexus has opened my eyes to a further consideration when training one up; the future.
Much debate on Nexus has focused recently on the impact of Artifical Intelligence (AI) and Robotics and Autonomous Systems (RAS). It does not seem to me inconceivable, that the combination of AI and RAS will blur the current distinction between commissioned and non-commissioned commanders in terms of capability under command and mission sets expected. All this in a operating environment that is expected to grow in physical, informational and quite possibly moral complexity. If this is not inconceivable, and if the only sure thing we do know about the next conflict is that it will not be like the last conflict, then surely investing early in educating and training our personnel will give them the agile edge to help enable us to prevail in the future?
PME: The Form
My views on PME are straight forward. PME encompasses training and education. In terms of function we train for technical competency and educate for agility and those things which are difficult to train effectively for.
Training encompasses the ‘what‘ and ‘how‘;
Education encompasses the ‘why‘ and the ‘high‘.
I say ‘the high‘ because I note that training is generally focused on tactical skills whereas education (in my experience) is better suited to imparting the the operational and strategic level skill sets.
A necessary skill set for all ranks, and one that in my experience needs to be instilled early and encouraged throughout, is critical thinking; it is not something I think we do very well as an organisation but I see encouraging signs that we are movingly in the right direction. In the modern and future operating environment I think critical thinking will become an essential skill set for all ranks and with the narrow focus of PME for other ranks almost exclusively focused on what to do and how to do it, the why, of which critical thinking is such an essential component , is noticeably lacking. Maj Gen Mick Ryan (@WarintheFuture) stated it well in his talk on ‘Future Joint Officer 2040‘ (see Nexus) when he noted that as we lose our technical advantages and no longer operate at mass, that we must out-think in order to out manoeuvre and out fight. To me, this demands an investment into our intellectual capital, and we would be remiss not to invest broadly across the spectrum of our personnel, recognising the the force and rank structures of today may be increasingly anachronistic for the fights of tomorrow.
Lastly I would also recognise that it is a valid argument that PME plays a role in meeting the expectations, professional and personal, of those who join today. When I joined the British Army was seen as a way of gaining a trade and getting ahead. Joining the military was seen as a good thing. While operational effectiveness underpins all that we do, it is ostensibly the primary, but not exclusive, driver for what we do. We would do well to remember this and not discount options because they are not of immediate and tangible operational worth; investing in the long game means investing in our people.
In conclusion I will quote von Scharnhorst, but proffer the thought that where he says ‘officers‘ we should substitute ‘leaders‘, for is this not what we should aspire to for our future generations of soldiers?
“If a young man, who is destined for a military career, does not learn to use his mind right, to judge correctly and conclusively, the mathematics and theory of war, then no experience will help him. One has to give young people, destined to become officers, the early opportunity to think about their profession, to use other’s insights and experiences; to do that they need to have the right basic notions.”
Keep up the good work Barney!
For further reading on the subject of PME and training the books that have influenced my thoughts the most are:
The British Army regards the American Revolutionary War with the same zeal as it regards our most recent escapades in southern Iraq; a campaign that is to be acknowledged grudgingly and preferably consigned to the dustbins of history. We are sore losers. That is a shame as there is a great deal to learn from both campaigns; in fact somewhat perversely there are likely to be more lessons to be learnt from those campaigns that veer between an inconclusive result and an outright defeat than there are from our better known victories. These lessons are also more likely to be at the operational and strategic level, levels at which the current British reputation is somewhat lacklustre. This is clearly the case for the American Revolutionary War which is highly pertinent to today.
The American Revolutionary War lasted from 1775 until 1783. It grew from a colonial rebellion to a broad conflict encompassing France, Holland and Spain. Unlike the common misconception of British defeat being due to incompetent British officers leading the thin red line against plucky Americans unsportingly hiding behind trees (British soldiers adapted very quickly to North American requirements, petite guerre was not new, and British light companies were very good) the reality reveals campaign lessons on:
Logistics. Inter-Theatre the British were at the end of a 9 week supply chain from the UK to the US ( and in this in the days before refrigeration). Intra-theatre the communications/transport system network simply was not as developed as it was in Europe and the ground posed significant challenges. This conflict more clearly than many, highlights the impact of logistics on campaigning.
Joint Operations. We think of the American Revolution in terms of British joint operations, but the entry of the French fleet into the fight was a pivotal point in the war, and Franco/American joint operations in the Yorktown campaign were superb. We lose control of the sea at our peril.
Mass matters. The British never had sufficient combat power to secure terrain and take the offensive. Without the ability to secure the population, Loyalists never felt secure enough to commit to the Crown. With the broadening of the conflict to include France, Spain and Holland, British commitments increased (we had to strip manpower from Theatre to meet greater priorities while the Americans received additional combat power.
Alliances matter. It is debatable whether the Continental Army was sufficient in itself to defeat us, it is undeniable that the alliance (America, France, Spain and Holland) did.
Peer Power Competition. As we move from a super-power world to a multi-power world there are lessons to be learnt for us about strategy in a multi-polar competitive system.
It’s all about the economy, stupid. Wars are expensive, and we in the military tend not to look at the overall impact of their costs, but politicians (rightly) do. At the strategic level the costs of war weigh heavily.
In looking at this campaign at the operational and strategic levels I found the Ucko and Marks framework for analysing armed threats particularly instructive.
Lastly in thinking of this campaign I was minded very much of General Sir Rupert Smith’s comment from the recent RUSI Land Warfare Conference: “You and your opponent share the objective; legitimacy, populations access to basic resources, imposing the rule of law or not. These are competitive relationships, not adversarial. A race, not a boxing match.”
For those who do wish to study the campaign some more, here are my top four picks:
With Zeal and Bayonets Only. A more in depth study of British Army tactics, equipment and performance over the course of the war. The author (in his own words) aims to “show in the course of this work, the King’s troops won the vast majority of their battlefield engagements in America because they tailored their conventional tactical methods intelligently to local conditions…” The work is narrowly focused on the operational and tactical levels and is best read after gaining an understanding of the broader contours of the war. Reviewed here.
A Respectable Army. The first book I was introduced to when looking at the Revolutionary War and rightly so. It is one of the definitive accounts of the war and of the Continental Army. Reviewed here.
The Men Who Lost America. No one likes a loser, as is clearly shown by how history has treated those in charge of British efforts during the war. As we consider our recent campaigns and some dubious decisions closer to home (I think of the outsourcing of recruiting and housing in particular) it is worth considering that we rarely select idiots as generals, now or ever (there are a few honourable exceptions). This book provides a good look at British higher command during the Revolutionary War, and should make one consider the linkages between strategy and operations. Reviewed here.
Brexit where art thou? In the most famous scene from ‘Downfall‘, Hitler is informed of the failure of Steiner to launch his counterstroke against the Russians advancing on Berlin. There is a pregnant pause at the beginning of the scene as Hitler, briefed on the Russian breakthroughs counters with “Steiner’s assault will bring it under control”, except Steiner has no manpower to launch the assault and everyone knows this except Hitler. The RUSI Land Warfare Conference felt somewhat akin to this pregnant pause, except the 250lb gorilla in the room that no-one was talking about was BREXIT and not Army Detachment Steiner. Be that as it may, the Land Warfare Conference was excellent on a number of fronts and these are my headline thoughts from the proceedings.
How Big is Big Enough? To my mind there was a degree of existential angst evident about the size of the British Army. Perhaps we have over focused on manoeuvre warfare as mitigation for our reducing numbers, and forgotten that warfare also has a very necessary attritional component? There is a sense that we recognize that we are now too small to be sustain significant casualties and therefore to take risk at the operational level; if we are too small, how useful are we? How much attrition can the British Army stand? This is important as the tenor of proceedings was of a drift to Great Power competition and existential struggle; of wars of necessity and not choice. There are ways to offset this. Rapid expansion is unlikely as we do not have the industrial base to support rapid expansion, but the points made by Professor Hugh Durrant-Whyte and Major Kitty McKendrick about the possibilities use of AI to increase autonomy were very well made. Along with talk of autonomy I enjoyed the sense that we need to broaden the aperture of national security and make it everyone’s business to a greater extant than it is at the moment. Of course ‘national security’ and ‘defence’ are not synonymous, but the broadening of the conceptual framework is welcome.
The Changing Nature? Linked to this broadening sense of who needs to be involved in the national security business, is a sense that maybe the nature of war is going to change. I am not at all convinced of this, but I did feel that despite all the references at the conference to the impact if technology on warfare, we missed a chance to reflect on how technology is changing society. If the nature of warfare is going to change, then it is because the nature of society has changed (which is why I think a change in the nature of war is unlikely), but we have yet to explore fully how changes being wrought by technology and big data on society will in turn reflect on warfare.
Data is the new Oil. I enjoyed Dr Pippa Malmgren on data: “The new oil is data” and “we are now in an era of data power.” Dr Malmgren’s point on the requirement for speedier decision making is long overdue. Quite frankly our planning and decision making processes are no longer fit for purpose, they complicate the complex and increasingly reach decision too late. This is most evident at the operational and strategic levels, but is becoming more apparent at the tactical levels as well. We need to look at how best we adapt staff processes and use AI in order to enable commanders to make effective decisions.
All in all it was an excellent conference, with a notably broader and younger audience. The salient points were captured on Twitter (#RUSILWC) and for the British military the sessions are available through the Defence Gateway.
Operation Temperer has returned to barracks for now, but while it was deployed it brought to mind my early days soldiering on Operation Banner in Northern Ireland. The tasks were very much the same – key point defence and overt armed support to the civilian police, and to be frank the equipment did not appear to have changed all that much.
The more recent terrorist attack at London Bridge again brought to mind Operation Banner, but this time in a different guise. There were terrible comparisons to The Troubles made on social media and it highlighted the fact that to my mind Operation Banner remains more misunderstood than known, even by those who served there.
This misunderstanding was most clearly seen early on in the Iraq campaign, in the trite comparisons made between the British Army’s experience in Northern Ireland and its illusory success in Basra, and the then ongoing experiences of the mostly US forces in central Iraq. The fact is that as a campaign Operation Banner is not well understood, and certainly not by those who would reasonably be expected to know most about it – the British military.
Few serving soldiers now have any experience of serving on Operation Banner, but even those that do, none will have experience of the 1970s and few will have had experience of the covert struggle. Yet understanding the ebb and flow of the campaign in the 1970s when the hard lessons were learnt, as well as being cognisant of the covert war are essential to understanding the conflict as a whole. Most who are ready with the glib comparisons served in the 1980s onwards when the campaign was relatively mature and growing in sophistication. We remember the Techniques, Tactics and Procedures, but fail to grasp the ‘why’ of the operational approach or even the theatre lay down.
The British Army’s ‘Operation Banner: An Analysis Of Military Operations in Northern Ireland‘ published in 2006 is a remarkable piece of succinctness, capturing almost 37 years in 98 pages. The publication is not designed to be a definitive history of the campaign, not can it be considering its classification that makes it unable to touch on covert operations, and its narrow focus on the military and excluding the role of the police in detail. In fact the definitive history of the campaign has yet to be written.
The British Army’s study is however a good overview of the campaign and has some hidden gems in plain sight (Republican terrorists killed 30% more Republican terrorists than the Army (page 2-12)). This together with the following should be the starting point for those wishing to place the campaign in perspective:
To me it is remarkable how quickly Operation Banner has fallen from view, especially considering the fact the Republican terrorism remains very much active, albeit diminished. Yesterday’s wars are it seems, largely a matter for the historians, no matter how pertinent they are to the professionals of today.
Internal Security is somewhat of a modern day anathema to the British Army. When we operate under the guise of Military Aid to the Civil Powers it is generally thought of as being primarily with niche capabilities.
It has not always been so and popular memories are short. Few remember much about Operation Banner in Northern Ireland, except the glib view that we mostly learnt the wrong lessons and misapplied even these to Iraq and Afghanistan. Stretching further back, prior to the establishment of a professional police force, the military was heavily involved in supporting the Civil Powers in the maintenance of order.
Much comment has been directed recently at the fragmentation of the public sphere. This is a trend which has been ongoing for some time, but which has been thrown into sharp relief by recent political events at home and overseas. One result of the fragmentation of the public sphere is that political polarisation and possibly extremism is not only more possible, but possibly likely, and with this comes the prospect of increasingly large scale public order issues and other threats to the public space. In any large scale breakdown of public order the issue of the appropriate use of military force becomes an issue, as it did in 2011.
When I consider both this fragmentation of the public sphere and what could be perceived as the militarisation of the police, in the absence of of British paramilitary police force such as the French Gendarmerie and CRS, I wonder what is the British perspective of the role of the military in Internal Security? What is the British perspective on the role of police in Internal Security? In many parts of the world the primary role of the police forces is internal security, not policing (law enforcement) as we might recognise from a British or other Western model. As the military looks to become more engaged in upstream capacity building and defence engagement, understanding the British perspective and approach towards the military role in internal security, and towards internal security generally, is going to become more important.
It Happened Here is a little known masterpiece of the British Cinema that looks at the aftermath of a German invasion of Britain in World War Two. Unsurprisingly we behave in much the same way as the Europeans did. Some support the Nazis, some fight them and most just want a quiet life. We are not that different from those around us.
In the United States there is a growing scandal over the posting online of sexually explicit materiel involving service members. I would be surprised if something of that sort has not happened in the UK as well; we are not that different from those around us.
The queenofthinair philosophy blog has an excellent post on the affair which looks at it from an ethical stance. Fundamentally I am in agreement with much of what she says, where I disagree (albeit tangentially) is where she states “The first suggestion is this is indicative of the state of the larger sexual culture in our society that we cannot expect our military members and veterans to be exempt from. I see this as a variation on Socrates’ argument about the lack of morals in the youth and the general moral decay of society; this is hardly a new argument. Sexual mores change yes. Does that explain this? It may be part of the picture, but it is not sufficient.” I would agree with her absolutely on this, but where I disagree is that to my mind without addressing the issue of pornography in society I fail to see how we can effectively deal with the issue of the treatment of women in the military.
Another US Military blog also covers this in some detail. Again this blog states “And while I agree that rape culture is a growing issue nation-wide, the problem with this argument is that it 1) somehow alleviates the military of responsibility for policing itself and 2) ignores the fundamental issue here: Marines see other Marines (or service members see other service members) as “not Marines”. In short, some Marine men do not think that women Marines are Marines.” There are some fundamental problems with his argument here. Firstly in no way does accepting that there is a wider issue in society absolve or alleviate the military from policing itself. Secondly there is a flawed assumption that on becoming Marines (or any servicemember) people become asexual, they don’t. One can be a Marine and a man, or a Marine and a woman, one does not become a Marine and neither. The implications of this are that militaries will continue to have to deal with sexual behaviour patterns and issues for the forseeable future. Where this blog absolutely nails it is that this is about “training your troops to treat each other with dignity and respect.”
My moral upbringing and education taught me that all pornography was morally wrong. Pornography objectifies the subject as a means (object) to an end (sexual gratification), it is inherently degrading. It does not matter whether the person is a willing participant in pornography or not, pornography reduces the subject to the role of an object, stripping them of their intrinsic dignity as a person in the process. Two generations ago this was the accepted moral majority position on pornography in Western society. Yet pornography now is largely regarded as amoral in Western society. Sexting is as acceptable as texting and in some quarters the argument is made that pornography is both empowering and progressive. If as a society we continue to condone pornography, then we have to accept that there are consequences of doing so (note, this is not the same as saying that we accept those consequences).
The military too objectifies people in the sense that we value our service personnel as a means to an end (military performance). We get round the degradation of an individual’s self-worth through objectification, by giving them inherent self-worth as a servicemember. We state that we will esteem all alike as members of the service community, recognising no other denominator save that you perform your duties effectively. This approach works well, and means that the military simply has to police those elements of behaviour which detract from military effectiveness.
In terms of behaviour the military has often maintained different standards from civilians, but the substantive difference has normally been one of standards, not of type. The military have largely been held to the same or higher standards of behaviour than their civilian counterparts, but not to different types of behaviour. The problem for the military will be if de facto standards in wider society continue to drift away from those required for the effective functioning of the military. If this happens then correcting such behaviour will take increasing amounts of institutional energy.
I think that we are beginning to see this already with the unfolding scandal in the US. The US military will now have to actively enforce a code of behaviour that the chain of command likely assumed was inherent within its people. This would have been a naive assumption, I know that my sexual ethics are not those of my junior soldiers. The situation is exacerbated by the nature of modern social media. The proliferation of social media forums means that different generations often inhabit parallel cyberspaces with little overlap; again to police this will require an active effort.
The solution is remarkably simple, but also remarkably difficult. One has to inculcate junior commanders with the necessary values and they need to know their troops and guide, mentor and police their behaviour. This is top down driven and bottom up implemented. The hardest part will be the first part, inculcating the necessary behaviours.
Three points to finish with:
1) Do not underestimate the severity of the crisis within the USMC. This scandal exposes a fundamental breach in core values and standards within a sizeable element of the Corps, and a similar gap between generations. The role played (or not) by junior leadership in this scandal is one that bears the most scrutiny, where were the squad and section commanders and what role did they play?
2) This scandal also presents a fundamental opportunity for the USMC to reform itself.
3) Without doubt there is similar behaviour within the British Armed Forces; It Happened Here.
Amidst all the hullabaloo about Army 2020 Refine and Multi Domain Battle, the British Army has quietly released a new iteration of its capstone doctrine – Land Operations. Doctrine is not everyone’s cup of tea, but it is important. Land Operations clearly and concisely states what the Army thinks the nature and character of conflict is, the role of the army in conflict and how it will operate; it deserves to be scrutinised and debated widely.
The experience of Afghanistan is writ large in this new doctrine, but there is a danger that in applying the wrong lessons of the last war we fail to position ourselves for the next war. This doctrine fully incorporates Integrated Action which I have posted on previously, but as well as Integrated Action, Defence Capacity Building and Cyber Warfare are incorporated to varying extents and there is a welcome new annex “Understanding Risk”. In providing extracts of this new doctrine I have focused mostly on those elements that look at what conflict is and our role in it. I have done so because these are the fundamentals around which we build our functions, structures and equipment, aspects which are much debated in this forum.
THE LAND ENVIRONMENT
The land environment has human, information and physical aspects. Most people live in towns, cities and villages, and increasingly in coastal regions. There are very few areas in which no people live; even then, most apparently unpopulated space is a resource that supports the population in some way. People exist in linguistic, cultural, social, and political groups with specific identities, usually associated with particular territories. These territories typically take the form of states, or regions within or between them.
The significance of territory is, therefore, associated with group identity and access to resources; it is often rooted in deep cultural and historical factors as well as in governments’ obligations to provide security for their people. Competition for territory and resources, and issues such as injustice and lack of representation are often at the root of conflict.
Because of its significance, the physical capture and occupation of territory, or the credible threat to do so, has often been regarded as decisive. But, the ultimate decision is political rather than physical; people have to decide whether or not to accept the facts on the ground. Land forces, by dint of their presence among and proximity to the people, provide an important and usually necessary contribution to achieving these political outcomes.
The land environment is also shaped by the way that information is exchanged between individuals, tribes, ethnic and interest groups, and countries. This communication can be verbal, directly between people, through radio, television, and online. Human interaction is expanding and accelerating as information flows in the virtual domain increase. In the new information landscape, any digitally connected person has the ability to shape public understanding of and consensus for (or against) a conflict, or be influenced by other actors who exploit these means.
LAND FORCE AND LAND POWER
Land Power Definition. The ability to exert control within the land environment and to influence the behavior of actors and the course of events.
All land forces, regular or irregular, have four inherent attributes. Each attribute has advantages that can be used, but also disadvantages that have to be avoided or mitigated.
a. The primary attribute of any land force is its people. Land conflict is a human activity, between individuals and groups of individuals. Each of these participants has their own perceptions and interpretations of the environment. Land forces, therefore, are complex organisations, requiring moral as well as structural cohesion and deep hierarchies of command. They can be difficult to direct, so decentralised command systems tend to work best. Large numbers of people can also be expensive and lead to competition with other sectors of society requiring skilled personnel. Land forces are particularly reliant on high quality leadership, education and training at all levels.
b. Land forces’ presence on the ground means that they operate in close proximity to people and terrain. Soldiers are able to gain access to people and communicate directly with them. This gives them the potential to develop detailed understanding of the human, information and physical aspects of the environment. They can get close enough to distinguish between different people and groups, adjusting their approach accordingly. They present a particular kind of threat to adversaries, and are uniquely able to reassure and secure neutral and friendly people. Land forces can manoeuvre over ground, or via air or water, to take physical possession of terrain, or they can physically defend or secure it. The presence of land forces, therefore, is often essential for success which may only be achievable by fighting. The same presence, however, can also disturb local relationships, cause people to feel threatened, and become a focus for resistance
to which they are uniquely vulnerable. Sometimes this threat is mitigated by small or discreet deployments that contribute out of proportion to their size. To operate effectively, land forces must be able to understand and cooperate with local actors.
c. The attribute of persistence, the capacity of land forces to extend their presence in an area for long periods of time, gives land forces the potential to deepen their understanding of the local context, and develop engagement, control and influence. Presence and persistence can be highly significant, if matched by political commitment.
d. Land forces have inherent versatility because they consist largely of organized groups that can relatively easily conduct a very wide range of military and non-military tasks. So even when optimised for warfighting, land forces can be adapted to support, for example, stability and non-conflict activities such as humanitarian assistance and disaster relief.
THE CHARACTER OF CONFLICT
It is not possible to predict the exact character of contemporary conflict, because it is constantly changing and each conflict is unique and evolves in its own way. Nevertheless, certain trends and developments are apparent of which global connectivity and the accelerating flow of information are currently the most important. Although each conflict must be examined in its own right, three inter-related aspects of contemporary conflict are clear:
• the way in which people communicate;
• the proliferation and ever-increasing power of physical weapons;
• evolving strategies and tactics.
Rapid and broad communication of messages and ideas flow across physical boundaries through the virtual domain, energising the causes for which people fight. Adversaries can develop and exploit recruitment, manipulation, mobilization and targeting opportunities, while promoting their own narratives of events, in competition with our own. Our adversaries can share information and adapt more quickly than in the past.
Because of the proliferation of information, military activity is often immediately visible to a local and global audience. The local audience includes enemies, adversaries and a range of actors, from allies and partners to the local population. The global audience is unbounded. Each of these groups interprets our activity through their own lens, and each is influenced by others. Many actors are adept at presenting military activity to the audience, magnifying, mitigating or altering it to influence observers’ understanding of what actually happened. This is critically important to us, our allies and adversaries, because the audience judges whether military action achieves its political objectives. The impact of physical military activity can have more immediate, wide-ranging consequences than in the past, for example more quickly deterring, demoralising or stiffening the resolve of other actors.
As we and other actors become more and more reliant on sophisticated information services, so the threat of cyber attack increases. This novel threat has the potential to disrupt our information services and any systems that rely on electronic control systems.
As our military operations become more visible, and come under greater domestic and international scrutiny and criticism, there is a higher expectation of military restraint compared with the past. This often leads to legal and policy constraints on our use of force additional to the requirements of international law. Many of our actual and potential adversaries do not recognise international law, and do not have the same constraints. They are able to exploit this situation to their advantage by, for example, concealing themselves in the population, using tactics and weapons not available to us, or causing us to be restricted by our own (legitimate) rules.
The power of physical weapons continues to increase, and these weapons are often available to irregular forces. Chemical weapons are used and biological, nuclear and radiological weapons remain a threat. Fires and explosives continue to dominate and shape the tactical battlespace, whether, for example, delivered by long range rocket systems or in the form of improvised explosive devices. These are what destroy things and kill and injure people; therefore they have the greatest resonance in the eyes of the participants and observers of conflict.
The recent period has seen the emergence of the concept of ‘hybrid warfare’. This describes strategies that are not new, but which are increasingly employed by state and non-state actors. Potential adversaries are demonstrating the will and capability to undermine Western operational capability, resolve and legitimacy by blending conventional and unconventional forms of conflict, using both attributable and nonattributable methods. These include posturing, provocation and persuasion in the physical and virtual domains, subversion, and economic and cyber warfare, with or without the employment of conventional military forces. This ‘hybrid’ threat to the international rules-based order can be applied in a way that remains below formal Western military response thresholds.
IMPLICATIONS OF THE NATURE AND CHARACTER OF CONFLICT
Land forces have four functions: fight, engage, secure and support. These functions of land power can be exercised independently or in combinations.
a. The fundamental capability of land forces is to fight in the most demanding circumstances. This capability underpins the other three functions; gives credibility to deterrence, coercion and containment and other strategies; and is essential for interventions and territorial defence.
b. Land forces can engage with a range of actors and audiences, directly and indirectly, contributing to understanding, influence and conflict prevention.
c. Land forces are particularly able to secure and protect people and places persistently in the land environment. This includes providing security in support of inter-agency stabilisation and reconstruction.
d. Land forces can support and assist state and non-state institutions. They can provide mass and presence as well as specialist capabilities.
As the audience’s judgement is an increasingly significant factor in contemporary conflict, operations must be designed and conducted accordingly. No conflict has a purely military solution, and overall success requires favourable consensus among a diverse audience. What we say, how we are seen and what we do must be consistent and appropriate. At the margin, a neutral or nearly neutral outcome of military action can be turned into a success or a failure by how it is perceived.
Because military force is used to achieve political outcomes, it should be consciously aimed at altering people’s behaviour. The application and threat of force, and the gaining and retention of physical objectives should be used to affect people’s decision making in ways consistent with our goals. For this reason, in combat, physical destruction and damage is used to achieve two things: an immediate local reduction in enemy capability; and more importantly, wider damage to the enemy’s will and cohesion. The most efficient and often most effective way to achieve this is by creating and attacking weaknesses to demoralise and disintegrate the enemy, rather than attacking strength head-on to destroy as much equipment, manpower and materiel as possible.
As well as fighting and providing security, land forces are in a position to communicate directly with individuals and groups involved in a conflict. To change or maintain the behaviour of these actors, land forces should integrate the use of force with communications in a mutually reinforcing way. In turn, to achieve political outcomes, they must integrate their activity with that of the diplomatic and economic instruments of power.
The relative ease with which our activities can be observed, commented on and interpreted by multiple audiences makes previous operational and nonoperational distinctions less valid. Even relatively minor armed conflicts have potentially global consequences, for example through diaspora of people with common identities or transnational economic dependencies.
Since the effects of even distant conflicts have consequences domestically and for the international rules-based order, there is a strategic imperative for land forces to contribute to improved security in relevant parts of the world. Military power, complementary to other instruments of state power, can contribute through early and persistent engagement overseas, capacity building of local security forces, and by deterrence. In doing so, land forces can develop the understanding, relationships and outlook necessary should conflict occur.
Integrated Action is the application of the full range of lethal and non-lethal capabilities to change and maintain the understanding and behaviour of audiences to achieve a successful outcome.
Integrated Action describes how land forces orchestrate and execute operations in an interconnected world, where the consequences of military action are judged by an audience that extends from immediate participants to distant observers. Integrated Action requires commanders and staff to be clear about the outcome that they are seeking and to analyse the audience relevant to the attainment of their objectives. They then identify the effects that they wish to impart on that audience to achieve the outcome, and what capabilities and actions are available. These lethal and non-lethal capabilities may belong to the land force itself, or to joint, intergovernmental, inter-agency, non-governmental, private sector and multinational actors involved in the operation. What is important is for commanders and staff to work out how to synchronise and orchestrate all the relevant levers to impart effects onto the audience to achieve the outcome.
Integrated Action, with the audience as its major consideration, requires sophisticated understanding, integration of all capabilities available, and is outcome-focused. These are the four fundamentals of the doctrine.
a. People are at the heart of conflict; it is their decisions and behaviours that determine how conflict is conducted and resolved. Integrated Action requires consideration of the diverse audience that is relevant to the attainment of our objectives, globally, nationally and within theatres of operations.
b. Integrated Action is founded on the land force’s understanding of its task and environment. A dynamic approach to understanding, built on a learning culture, allows the force to adapt and innovate in response to evolving situations.
c. Land forces create desired effects by the integration of lethal and non-lethal capabilities. Effective integration relies on the cooperation and interoperability of the land force, multinational, host nation, inter-governmental, non-governmental and inter-agency partners, as well as of tactical combined arms formations and units.
d. Integrated Action needs commanders to think about how their actions contribute to the desired outcomes, in a broad and evolving context. This approach encourages a wider and longer-term view of a situation, relative to the task and role of the land force.
The doctrine of Integrated Action applies at all levels to land forces, from the land component of the joint operation, to tactical formations, units and sub-units. There is, however, an important delineation between responsibilities for its orchestration and execution.
It is only at the higher tactical or operational level (usually the division or corps) that Integrated Action can be orchestrated and fully aligned with joint, interagency and multinational operations. In certain circumstances, brigades or units may be the highest level of UK land command in a particular theatre and so may be required to operate at the operational level. Examples include conducting capacity building or non-combatant evacuation operations. In such cases, they must be resourced appropriately.
Integrated Action blends lethal and non-lethal actions to have effects on the understanding, physical capability, will and cohesion of the audience. Organised into attainable objectives, these effects are ultimately realised in people’s minds, influencing their decision making, to achieve the desired outcomes. Although not all tactical activities are directed against people, the ultimate targets of land power are the audience and actors. Integrated Action is planned from desired outcome back to actions, through objectives and effects, and adjusted in execution in response to what has been learned and the changing situation.
Within the land force, the tactical functions are the primary levers of influence, representing the full breadth of the force’s activities that are integrated when orchestrating and executing operations. These are, however, rarely sufficient. Commanders and staff must also seek to integrate a range of different levers not under their direct control; they must, therefore, cooperate with joint, intergovernmental, inter-agency, non-governmental, private sector and multinational actors involved in the operation.
Those tactical functions mainly directed towards actors are: manoeuvre, fires, information activities and capacity building. Their successful application depends on command and intelligence which set the operation’s direction, and protection and sustainment which enable the mission. These tactical functions can also have direct and indirect effects on the audience as well as on the mission itself. For example, how a force collects intelligence, protects or sustains itself may directly affect the audience’s perceptions of the force.
The tactical functions represent the full breadth of a land force’s activities when conducting operations. They are:
• Information activities
• Capacity building
The tactical functions are a device that helps to organise activities into intelligible groups; they have no effects, whereas the activities do. As a rule of thumb, corps and divisions are designed to conduct all the tactical functions simultaneously. Subordinate force elements may be able to apply all the functions to lesser degrees or specific ones to great effect. The tactical functions also provide a useful checklist for commanders when assessing a plan, and a common vocabulary for describing a force’s overall capabilities.
British Army doctrine follows the NATO codification of operations themes, types of operation and tactical activities. This enhances interoperability with allies and aids understanding of the mosaic of conflict. Operations may be assigned or described in terms of particular contextual themes. These operations themes allow the general conditions of the operating environment to be understood, informing the intellectual approach, resources available (including force levels, rules of engagement and force protection measures), likely activities required and levels of political appetite and risk. There are four themes, aligned to the functions of land power: warfighting, security, peace support and defence engagement. These themes provide a framework for understanding in general terms the context and dynamics of a conflict and are often concurrent with other types of operation within the mosaic of conflict. These aid analysis and articulation of complex missions and provide the essential gearing required to sequence a series of tactical activities to achieve operational objectives. Within all types of operation, land forces conduct all or some of a range of tactical activities, often concurrently.
This is an evolution of British Army doctrine. It represents thinking borne of experience of recent conflicts, and in many of the terms and taxonomies it nests comfortably with NATO and US doctrine. Fundamentally this doctrine states what we think conflict is now and in the future, our role in it and how we do what we do. As we look at the experience of Iraq, Afghanistan, Syria and Ukraine, of the Russian role in the US elections and waning Western hegemony, have we got it right? My personal sense is that this new iteration is a good update and improvement. It is written in plain English, is concise (some 200 pages) and does largely reflect what I see in the changing character of operations. I do query whether if, by focusing our role as primarily about changing behavior, our doctrine may have become too obtuse for what is an army that will operate almost exclusively at the tactical level. I also query how often we need to update our capstone doctrine (previous iterations were issued in 2005 and 2010, and whether we are doing enough to educate and inform the wider UK defence community in our thinking. Read, think, question and debate!