AIR FORCE SENIOR NONCOMMISSIONED OFFICER ACADEMY STUDENT GUIDE PART I COVER SHEET

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1 DEPARTMENT OF THE AIR FORCE Thomas N. Barnes Center for Enlisted Education (AETC) Maxwell-Gunter AFB 1 Dec 12 AIR FORCE SENIOR NONCOMMISSIONED OFFICER ACADEMY STUDENT GUIDE PART I COVER SHEET LESSON TITLE: JW01, Policy, Strategy, Doctrine, and Joint Warfare TIME: 3 Hours METHOD: Guided Discussion, Experiential Learning Exercises LESSON REFERENCES: Air Force Doctrine Document (AFDD) 1. Air Force Basic Doctrine, 14 October Bartolotto, LTC John K. The Origin and Developmental Process of the National Security Strategy. Research Project, US Army War College, 3 May Executive Office of the President. National Security Strategy of the United States of America. Washington, DC, May Joint Publication (JP) 1. Doctrine for the Armed Forces of the United States, 02 March 2007, Incorporating Change 1, 20 March Joint Publication (JP) Department of Defense Dictionary of Military and Associated Terms, 8 November 2010 (As Amended Through15 August 2012). Joint Publication (JP) 3-0. Joint Operations, 1 August 2011, 3-08 Vol. 1. Interagency, Intergovernmental Organization, and Nongovernmental Organization Coordination During Joint Operations, 24 June Joint Publication (JP) Information Operations, 13 February Joint Publication (JP) Multinational Operations, 7 March Joint Publication (JP) 5-0. Joint Operation Planning, 1 August The White House. National Security Council. ADDITIONAL REFERENCES: None STUDENT PREPARATION: 1. Read Student Guide. (8 600 words, approximately 75 minutes) 2. Complete homework assignment at end of student reading.

2 PART IA COURSE GOAL: Prepare Senior NCOs to lead the enlisted force in the employment of air, space and cyberspace power in support of our national security objectives. LEARNING OUTCOME: Upon completion of this lesson, students will understand policy, strategy, doctrine, and joint warfare and value how that knowledge helps SNCOs complete the mission. TERMINAL COGNITIVE OBJECTIVE: Comprehend Policy, Strategy, Doctrine, and Joint Warfare TERMINAL COGNITIVE SAMPLES OF BEHAVIOR 1. Explain Policy, Strategy, Doctrine, and Joint Warfare 2. Give examples of Policy, Strategy, Doctrine, and Joint Warfare AFFECTIVE OBJECTIVE: Value Policy, Strategy, Doctrine, and Joint Warfare. LESSON OUTLINE: Introduction PART IB MP 1. MP 2. MP 3. MP 4. MP 5. MP 6. MP 7. Homework Review Policy, Strategy, and Doctrine Operational Art and Contextual Elements Instruments of National Power Joint, Multinational and Interagency warfare Levels of War Case Studies Conclusion PART II STUDENT READING JW01SG - 2

3 POLICY, STRATEGY AND DOCTRINE Relationship between policy, strategy, and doctrine The term Doctrine is frequently (and incorrectly) used when referring to Policy or Strategy. These terms are not interchangeable; they are fundamentally different. Because Policy and Strategy may impact each other, it is important to first understand their differences before delving into a discussion of Doctrine. 1 Policy is guidance that is directive or instructive, stating what is to be accomplished. It reflects a conscious choice to pursue certain avenues and not others. Thus, while Doctrine is held to be relatively enduring, Policy is fluctuating. Policies may change due to changes in national leadership, political considerations, or for fiscal reasons. At the national level, Policy may be expressed in such broad vehicles as national objectives, enduring national interests in the National Security Strategy (NSS) or Presidential Executive Orders. Policy at our nation s highest levels originates from the President and the Secretary of Defense (SECDEF). It is also dependent on what realities are at that time in history. Consider this: are our National Policy and Strategic Objectives of the current administration the same as they were during the Cold War? The realities of the time in history, and in world events often cause changes (although slowly) to Doctrine. Policies and objectives originate from the current administration s mental image of the world. Within military operations, Policy may be expressed not only in terms of objectives, but also in rules of engagement (ROE) what we may or may not strike, or under what circumstances we may strike particular targets. 2 A hypothetical World War II example of a national strategic objective (a form of expressed Policy) could be to Regain U.S. Interests in the Pacific. Strategy defines how operations should be conducted to accomplish national Policy objectives. Strategy is the continuous process of matching ends, ways, and means to accomplish desired goals within acceptable levels of risk. Strategy originates in Policy and addresses broad objectives, along with the designs and plans for achieving them. 3 There are several things that must be considered when choosing a Strategy: what Doctrine currently exists, what are the realities of the situation that may dictate the use or deviation from Doctrine, and what are some elements that can affect the outcome of an operation that we cannot control? All of these things shape the Strategy that is chosen by a Commander. A hypothetical example of Strategy is the Island Hopping that was used in the Pacific theater during World War II. There were multiple ways of how to accomplish the (military) objective of Defeating the Japanese military, but this Strategy was used based on the Doctrine and considering the world situation at the time. Doctrine presents considerations on how to accomplish military goals and objectives. It is a storehouse of analyzed experience and wisdom. Military Doctrine is authoritative, but unlike Policy, is not directive. 4 Put another way, Doctrine is a playbook of how we have learned over time as the best way to accomplish a given task. It is built through years of experience that shapes how we employ military forces. Since we have gone to the trouble of studying the best way to accomplish a given military task, it is expected that Doctrine be followed. Thus Commanders must consider Doctrine when selecting a Strategy to accomplish a mission. Consider this example of Doctrine: suppose an JW01SG - 3

4 American football coach has learned over time that it is usually best to punt on a fourth down. This is the tried and true method that is the least risky to the team. This is a simple example of Doctrine. As we will find out though, a Commander (or coach) doesn t always follow the tried and true method but instead decides to choose a different Strategy. This is where Operational Art comes into play (discussed later). There are several Strategies that address our nation s strategic goals. The first starts at the top with our nation s National Security Strategy. National Security Strategy The Origin of the National Security Strategy Today, national security is a collective term encompassing both national defense and foreign relations of the United States, but it wasn t until 1943, during World War II (WWII), that the term national security came into full usage in US political discourse. But since the end of WWII, each administration has sought to develop and perfect a reliable set of executive procedures and institutions to manage national security Policy. Congress stepped into the debate by passing the National Security Act in 1947, which, among other things, created the National Security Council (NSC) under the chairmanship of the President to coordinate foreign Policy and defense Policy, and to reconcile diplomatic and military commitments and requirements. The next precedent came in 1972 when the Nixon administration did official statements of NSS in a State of the World Report. The Nixon administration s precedent became law in 1986 with the Goldwater-Nichols Department of Defense (DOD) Reorganization Act, which required the President to report regularly to Congress and the American people on the NSS. Congress s mandate tasked the Executive Branch to publish a NSS, and in 1987 the first document called "The National Security Strategy of the United States" was published by the Reagan administration. 5 The Developmental Process of the National Security Strategy - The National Security Council (NSC) is the President's principal forum for considering national security and foreign Policy matters with his senior national security advisors and cabinet officials. Since its inception under President Truman, the Council's function has been to advise and assist the President on national security and foreign policies. The Council also serves as the President's principal arm for coordinating these policies among various government agencies. 6 Developing a Strategy for an entire nation involves a lot of key players which make up the NSC. The NSC is chaired by the President. Its regular attendees (both statutory and nonstatutory) are the: Vice President, Secretary of State Secretary of the Treasury Secretary of Defense JW01SG - 4

5 Assistant to the President for National Security Affairs The Chairman of the Joint Chiefs of Staff is the statutory military advisor to the Council, and the Director of National Intelligence is the intelligence advisor. The Chief of Staff to the President, Counsel to the President, and the Assistant to the President for Economic Policy are invited to attend any NSC meeting. The Attorney General and the Director of the Office of Management and Budget are invited to attend meetings pertaining to their responsibilities. The heads of other executive departments and agencies, as well as other senior officials, are invited to attend meetings of the NSC when appropriate. 7 The overall process of initiating, controlling, developing, writing, and publishing the National Security Strategy (NSS) is owned and resides with the Assistant to the President for National Security Affairs, who also heads/leads the NSC staff. 8 As previously mentioned, each NSS originates from the administration s mental image of the world. As a process the NSS involves determining what interests the nation has, what priorities to place on those various interests, and what national instruments of power, (diplomatic, informational, military, and economic) are available and appropriate for achieving those interests. 9 The NSS document is an indicator of an administration s direction in national security and foreign Policy. The NSS is eagerly awaited because it is the best example of purposeful adaptation by the American government to changing global realities and responsibilities. It expresses the US strategic vision, what the US stands for in the world, its priorities, and a sensing of how the instruments of national power will be arrayed. Since it is truly an interagency product, the NSS also serves to discipline the interagency system to understand the President s agenda and priorities, and develops a common language that gives coherence to Policy within an administration. 10 In other words, the NSS gives our national agencies guidance of what is important to our nation, and gives our nation as well as other nations an idea of how our instruments of national power will be used or employed based on the world situation at the time. The NSS evolves over time according to the international environment. During the Cold War, facing the Soviet Union as a peer competitor, a Policy of containment dominated our Strategy. During the 90s, when the threat to the Nation was more ambiguous, a new Strategy evolved centered on engagement. More recently, faced with a worldwide terrorist threat, our Strategy has evolved accordingly, to include an unprecedented emphasis on homeland security and a deliberate shift toward preemption as a viable consideration. These changes in overall Strategy drive changes to military capabilities, worldwide posture, and functional and geographic focus of the US Armed Forces. In the event of armed conflict, national Strategy will be tailored to meet national security objectives and terminate conflicts on terms favorable to US interests. 11 The current National Security Strategy outlines the direction that our National leadership wishes to take and gives some areas of focus for out Instruments of National Power to JW01SG - 5

6 focus. Outlined below is an excerpt from the 2010 NSS: The United States must renew its leadership in the world by building and cultivating the sources of our strength and influence. Our national security depends upon America s ability to leverage our unique national attributes, just as global security depends upon strong and responsible American leadership. That includes our military might, economic competitiveness, moral leadership, global engagement, and efforts to shape an international system that serves the mutual interests of nations and peoples. For the world has changed at an extraordinary pace, and the United States must adapt to advance our interests and sustain our leadership. American interests are enduring. They are: The security of the United States, its citizens, and U.S. allies and partners; A strong, innovative, and growing U.S. economy in an open international economic system that promotes opportunity and prosperity; Respect for universal values at home and around the world; and An international order advanced by U.S. leadership that promotes peace, security, and opportunity through stronger cooperation to meet global challenges. 12 All of these items are enduring interests. Any (or any combination) of the Instruments of National Power (Diplomatic, Information, Economic and Military--discussed later) can be used to attain these goals. It is common to use more than one Instrument of National Power for the attainment of these Enduring Interests. National Defense Strategy Under the NSS, the Department of Defense can (if the SECDEF desires) a Strategy that complements the NSS. Although there is no statutory requirement, The Secretary of Defense (SecDef) may produce a National Defense Strategy (NDS), which outlines the Department of Defense (DOD) approach to implement the President s National Security Strategy (NSS). The NDS will support the NSS by establishing a set of overarching defense objectives that guide DOD s security activities and provide direction for the National Military Strategy (discussed next). The NDS objectives will serve as links between military activities and those other government agencies in pursuit of national goals. 13 The DoD and other national agencies serve as the means in which objectives in the NDS are met. NDS objectives are aligned with and support the attainment of higher level NSS objectives and Enduring Interests. National Military Strategy (NMS) The NMS, signed by the CJCS, supports the aims of the NSS and implements the NDS. Itdescribes the Armed Forces plan to achieve military objectives in the near term and provides the vision for ensuring they remain decisive in the future. 14 In short, it outlines the military s role in achieving national objectives or enduring interests. The NMS forms the basis for formal planning within the Joint Strategic Planning System. Like NSS, NMS evolves as the international environment, national Strategy, and national military JW01SG - 6

7 objectives change. The U.S. Armed Forces are the means in which NMS objectives are met. NMS objectives are aligned with and aid the attainment of NDS objectives. This in turn leads to the attainment of NSS objectives. In summary, each strategy aligns with and helps obtain the higher level objectives. This ensures that military and defense strategy aligns with National Security Strategy objectives and Enduring Interests The Development of Policy: Figure 1 Relationship between Policy and Strategy Doctrine Doctrine embodies fundamental principles by which the military forces or elements thereof guide their actions in support of national objectives. It is authoritative but requires judgment in application. 15 As previously stated, when faced with an objective Commanders first consider Doctrine (the playbook ) to decide how to move forward. There is a best way to accomplish nearly every task. In our joint world today, this involves working with other services and government/intergovernmental agencies. Doctrine exists at many levels, starting most importantly with the Joint level. In today s military it is imperative that the military services work together as a team. Gone are the JW01SG - 7

8 days of individual services going it alone. With today s fiscal realities and military personnel limits make Joint Warfare a necessity. As with other types of Doctrine, Joint Doctrine deals with how we fight as an integrated force. JOINT DOCTRINE. Joint Publication (JP) 1, Doctrine for the Armed Forces of the United States provides overarching guidance for the employment of the Armed Forces of the United States. It is the capstone publication of the US joint Doctrine hierarchy. As such, it is a bridge between Policy and Doctrine. It sets the conditions for further detailed treatment of all aspects of joint warfighting in subordinate publications. Joint Doctrine presents fundamental principles that guide the employment of US military forces in coordinated and integrated action toward a common objective. It promotes a common perspective from which to plan, train, and conduct military operations. It represents what is taught, believed, and advocated as what is right (i.e., what works best). It provides distilled insights and wisdom gained from employing the military instrument of national power in operations to achieve national objectives. 16 The purpose of joint Doctrine is to enhance the operational effectiveness of US forces. Think about the differences in terminology and approaches to a task that exist between the services still today. It is clear that Joint Doctrine is needed to get us all on the same page if we are to fight as an integrated force. Joint Doctrine is based on extant capabilities, i.e., current force structures and materiel. It incorporates time-tested principles such as the principles of joint operations, operational art, and elements of operational design for successful military action, as well as contemporary lessons that exploit US advantages against adversary vulnerabilities. Joint Doctrine standardizes terminology, training, relationships, responsibilities, and processes among all US forces to free Joint Force Commander s (JFC) and their staffs to focus efforts on solving the strategic, operational, and tactical problems confronting them. 17 Joint Doctrine applies to all military forces. Joint Doctrine takes precedence over individual Service s Doctrine, which must be consistent with joint Doctrine. 18 Service Doctrine is a more detailed application of theory and experience that is tailored to the unique capability of each service. It is written from the perspective of each service s culture and the medium of warfare in which the service operates the most frequently. Service Doctrine is meant to be complementary to Joint Doctrine. When the Armed Forces of the United States participate in multinational operations, US commanders should follow multinational Doctrine and procedures that have been ratified by the United States. For multinational Doctrine and procedures not ratified by the United States, commanders should evaluate and follow the multinational command s Doctrine and procedures where applicable and consistent with US law, Policy, and Doctrine. 19 Up to this point we have discussed Policy, some national Strategy documents (NSS, NDS, NMS) and the meaning of Doctrine to include Joint Doctrine. As discussed previously, there are times that Commanders must deviate from the playbook of Doctrine using what we call Operational Art. JW01SG - 8

9 OPERATIONAL ART, OPERATIONAL DESIGN Commanders surely benefit from the established and time tested methods of military Doctrine. As previously mentioned though, there are times that deviation from Doctrine may be required given the situation. This is where Operational Art comes into play. Operational Art is the application of creative imagination by commanders and staffs supported by their knowledge, experience, and skills to design strategies, campaigns, and major operations and organize and employ military forces. 20 Operational art is the use of creative thinking by commanders and staffs to design strategies, campaigns, and major operations and organize and employ military forces. Operational art requires a broad vision, the ability to anticipate, and the skill to plan, prepare, execute, and assess. It helps commanders and their staffs order their thoughts and understand the conditions for victory before seeking battle. 21 Operational art applies to all aspects of joint operations and integrates ends, ways, and means, while accounting for risk, across the levels of war. 22 In other words, the Commander has to look at the end state required (must be consistent with an objective and Policy), use Doctrine and his or her experience to determine a Strategy to use, and take into account what is available in terms of forces, equipment, and logistics to make the Strategy happen. Operational Art requires knowledge of the situation and certain elements that are within and also outside the Commander s span of control. These elements shape the Strategy a Commander decides to use. Operational Art Elements such as Logistics, Technology to name only a couple are elements in which a Commander has some degree of control. Contextual Elements such as ours and the enemy s Political Systems, the physical environment and the enemy s/our national leadership to name just a few are elements that the Commander has little or no control over, but must nonetheless take into account when devising a Strategy. To sum up the process, given a Policy (what is to be accomplished) the Commander considers Doctrine (the best way to accomplish a task). The Commander also uses their Knowledge, Experience and Skills (Operational Art) and considers Contextual Elements (things they cannot control) to decide on how to accomplish a task. The result of this process is a Strategy. Operational Art Elements and Contextual Elements will be discussed in more detail in JW-04 Joint Planning. To bring these concepts together, consider an example from World War II when choosing the Strategy for OPERATION OVERLORD (otherwise known as the Normandy invasion or D-Day). Doctrine dictated that for an amphibious invasion to wait for tides to be their lowest to facilitate a more successful landing. Doctrine also called for an invasion to be launched in good weather conditions. The commonsense or logical location for the invasion was to attack at the narrowest point between England and France--also rooted in JW01SG - 9

10 Doctrine. General Dwight D. Eisenhower decided based on his knowledge, experience and skills (Operational Art) and considering Contextual Elements (like enemy leadership) to choose a Strategy that deviated from established Doctrine. After much thought he decided to launch the D-Day invasion in poor weather conditions (Contextual element the physical environment) with less than ideal tides. He also decided to launch the invading force to an area that was a significant distance from the English coastline, the Normandy Coastline of France (a departure from Doctrine). This caught the Germans completely off guard and due to his boldness and initiative (Operational Art), the Allies were able to gain a foothold in the mainland of Europe. 23 Operational Design Operational design is the conception and construction of the framework that underpins a joint operation plan and its subsequent execution. The key to operational design essentially involves: understanding the strategic guidance (determining the end state and objectives); identifying the adversary s principal strengths and weaknesses, and; developing an operational concept that will achieve strategic and operational objectives. 24 Operational design extends operational art s vision with a creative process that helps commanders and planners answer the ends ways means risk questions. The commander is the central figure in operational design. The elements of operational design are individual tools that help the JFC and staff visualize and describe the broad operational approach. Operational art, operational design, and joint operation planning process blend in complementary fashion as part of the overall process that produces the eventual plan or order that drives the joint operation. 25 In more simple terms, Operational Art entails the items a Commander has to consider when weighing how to approach a task (Strategy). Operational Design is comprised of the overhead guidance and structure that a Commander must follow and also ensuring that the Strategy will accomplish a larger national or military objective. In other words Operational Design ensures a certain amount of structure exists and that the Strategy a Commander uses fits into the larger national big picture. INSTRUMENTS OF NATIONAL POWER The ability of the United States to achieve its national strategic objectives is dependent on the effectiveness of the United States Government (USG) in employing the instruments of national power (diplomacy, information, military, and economy). The appropriate governmental officials, often with National Security Council (NSC) direction, normally coordinate these instruments of national power. They are the tools the United States uses to apply its sources of power, including its culture, human potential, industry, science and technology, academic institutions, geography, and national will. 26 At the President s direction through the interagency process, military power is integrated with the other instruments of national power to advance and defend US values, interests, and objectives. To accomplish this integration, the armed forces interact with the other responsible agencies to ensure mutual understanding of the capabilities, limitations, and JW01SG - 10

11 consequences of military and civilian actions. They also identify the ways in which military and nonmilitary capabilities best complement each other. The NSC plays key roles in the integration of all instruments of national power facilitating mutual understanding, cooperation, and integration of effort. This process of different USG agencies and organizations coordinating and working together is called interagency coordination. 27 Diplomacy Diplomacy is the principal instrument for engaging with other states and foreign groups to advance US values, interests, and objectives. The Department of State is the lead agency for the USG for foreign affairs. The credible threat of force reinforces, and in some cases, enables the diplomatic process. Leaders of the Armed Forces of the United States have a responsibility to understand US foreign Policy and to assure that those responsible for US diplomacy have a clear understanding of the capabilities, limitations, and consequences of military action. 28 Information In a broad sense, the informational instrument of national power has a diffuse and complex set of components with no single center of control. The United States believes in the free market place of ideas. Therefore, information is freely exchanged with minimal government controls. Constraints on public access to United States Government (USG) information normally may be imposed only for national security and individual privacy reasons. Information readily available from multiple sources influences domestic and foreign audiences including citizens, adversaries, and governments. It is important for the official agencies of government, including the armed forces, to recognize the fundamental role of the media as a conduit of information. 29 One of the manifestations of the Information instrument of National Power is the press. Consider how much the press influences national and world opinion. This in turn influences the military and can even influence Strategy. This is one reason why it is important for military members to properly engage the media. In the SNCOA, this is one reason we have the Culture of Engagement lesson. There are other ways that the military contributes to the Information Instrument of National Power. The predominant military activities that support Strategic Communication themes and messages are information operations (IO), public affairs, and Defense Support to Public Diplomacy. 30 IO are the integrated employment of electronic warfare, computer network operations, psychological operations, military deception, and operations security, in concert with specified supporting and related capabilities, to influence, disrupt, corrupt or usurp adversarial human and automated decision making while protecting our own. 31 Success in military operations depends on collecting and integrating essential information while denying it to the adversary. Fundamentally, IO encompass planning, coordination, and synchronization of the employment of current capabilities to deliberately affect or defend the information environment to achieve the commander s objectives. Figure 2 describes how IO is integrated into joint operations. 32 JW01SG - 11

12 A full explanation of IO can be found in JP 3-13, Information Operations. Economy Figure 2 Information Operations Integration into Joint Operations 33 The United States free market economy is only partially controlled by governmental agencies. In keeping with US values and constitutional imperatives, individuals and entities have broad freedom of action worldwide. The responsibility of the United States Government (USG) lies with facilitating the production, distribution, and consumption of goods and services worldwide. A strong US economy with free access to global markets and resources is a fundamental engine of the general welfare, the enabler of a strong national defense, and an influence for economic expansion by US trade partners worldwide. 34 The USG s financial management ways and means support the economic instrument of national power. The Department of the Treasury, as the steward of US economic and financial systems, is an influential participant in the international economy. It is responsible for a wide range of activities including advising the President on economic and financial issues, promoting the President s growth agenda, and enhancing corporate governance in financial institutions. In the international arena, the Department of the Treasury works with other federal agencies, the governments of other nations, and the international financial institutions to encourage economic growth, raise standards of living, and predict and prevent, to the extent possible, economic and financial crises. 35 JW01SG - 12

13 Military The purpose of the Armed Forces is to fight and win the Nation s wars. As the military instrument of national power, the Armed Forces must ensure their adherence to US values, constitutional principles, and standards for the profession of arms. The United States wields the military instrument of national power at home and abroad in support of its national security goals in a variety of military operations. 36 Although the military can be used in concert with the other Instruments of National Power, the use of the military to conduct combat operations should be a last resort when the other instruments of national power have failed to achieve our nation s objectives. 37 JOINT, MULTINATIONAL AND INTERAGENCY WARFARE The nature of the challenges to the United States and its interests demand that the Armed Forces operate as a fully integrated joint team. These operations may take place with the military forces of allies and coalition partners, US and foreign government agencies, state and local government agencies, and intergovernmental organizations (IGO) and nongovernmental organizations (NGO). The challenges are best met when the unified action of the Armed Forces elicits the maximum contribution from each Service and DOD agency. The resulting synergy from their synchronized and integrated action is a direct reflection of those capabilities. 38 Joint warfare is team warfare. Effective integration of joint forces exposes no weak points or seams to an adversary. They rapidly and efficiently find and exploit the adversary s critical vulnerabilities and other weak points as they contribute most to mission accomplishment. This does not mean that all forces will be equally represented in each operation. Joint force commanders (JFC) may choose the capabilities they need from the forces at their disposal. The joint team is comprised of the members of each Service, DOD agencies, as well as associated civilians supporting governmental and private sector workforces. The Services and United States Special Operations Command (in areas unique to special operations) have responsibilities to organize, train, equip, and sustain forces. These forces are employed under JFCs. 39 Service skills form the very core of US military capability. Joint warfare relies upon Service traditions, cohesion, and expertise. When combined with the ability to integrate these qualities into joint operations with partner military Services and other defense, logistical, and intelligence agencies, they become a formidable and capable force. With a mutual understanding and respect of other partner Services capabilities and the ability to be interoperable and effectively integrate operations to accomplish an overall campaign and/or USG objective(s), the Armed Forces of the United States continue to build on the tradition of joint victory in war that began with the Revolutionary War. 40 JW01SG - 13

14 Multinational Operations International partnerships continue to underpin unified efforts to address 21 st century challenges. Shared principles, a common view of threats, and commitment to cooperation provide far greater security than the United States could achieve independently. These partnerships must be nurtured and developed to ensure their relevance even as new challenges emerge. The ability of the United States and its allies to work together to influence the global environment is fundamental to defeating 21st century threats. Wherever possible, the United States works with or through others nations, enabling allied and partner capabilities to build their capacity and develop mechanisms to share the risks and responsibility of today s complex challenges. 41 Operations conducted by forces of two or more nations are termed multinational operations. Such operations are usually undertaken within the structure of a coalition or alliance. Other possible arrangements include supervision by an intergovernmental organization (IGO) such as the UN or the Organization for Security and Cooperation in Europe. Other commonly used terms for multinational operations include allied, bilateral, combined, coalition, or multilateral, as appropriate. An alliance is a relationship that results from a formal agreement (e.g., treaty) between two or more nations for broad, long-term objectives that further the common interests of the members. Operations conducted with units from two or more allies are referred to as combined operations. A coalition is an ad hoc arrangement between two or more nations for common action. Coalitions are formed by different nations with specific objectives, usually for a single occasion or for longer cooperation in a narrow sector of common interest. Operations conducted with units from two or more coalition members are referred to as coalition operations. 42 Cultural, psychological, religious, economic, technological, informational, and political factors as well as transnational dangers all impact multinational operations. Many operation plans (OPLAN) deter or counter threats are prepared within the context of a treaty or alliance framework. Sometimes they are developed in a less structured coalition framework, based on temporary agreements or arrangements. 43 Much of the information and guidance provided for unified action and joint operations are applicable to multinational operations. However, differences in laws, Doctrine, organization, weapons, equipment, terminology, culture, politics, religion, and language within alliances and coalitions must be considered. Normally, each alliance or coalition develops its own OPLANs to guide multinational action. 44 No single command structure best fits the needs of all alliances and coalitions. Each coalition or alliance will create the structure that best meets the objectives, political realities, and constraints of the participating nations. Political considerations heavily influence the ultimate shape of the command structure. However, participating nations should strive to achieve unity of effort for the operation to the maximum extent possible, with missions, tasks, responsibilities, and JW01SG - 14

15 authorities clearly defined and understood by all participants. While command relationships are well defined in US Doctrine, they are not necessarily part of the doctrinal lexicon of nations with whom the United States may operate in an alliance or coalition. 45 After World War II, General Dwight D. Eisenhower noted that mutual confidence is the one basic thing that will make allied commands work. While the tenets discussed below cannot guarantee success, ignoring them may lead to mission failure due to a lack of unity of effort. 46 Respect - In assigning missions, the commander must consider that national honor and prestige may be as important to a contributing nation as combat capability. All partners must be included in the planning process, and their opinions must be sought in mission assignment. 47 Rapport - US commanders and staffs should establish rapport with their counterparts from partner countries, as well as the multinational force commander. This requires personal, direct relationships that only they can develop. 48 Knowledge of Partners - US commanders and their staffs should have an understanding of each member of the multinational force. Much time and effort is expended in learning about the enemy; a similar effort is required to understand the Doctrine, capabilities, strategic goals, culture, religion, customs, history, and values of each partner. 49 Patience - Effective partnerships take time and attention to develop. Diligent pursuit of a trusting, mutually beneficial relationship with multinational partners requires untiring, evenhanded patience. This is easier to accomplish within alliances but is equally necessary regarding prospective coalition partners. 50 A full explanation of the fundamentals of multinational operations can be found in JP 3-16, Multinational Operations. Interagency Coordination Attaining our national objectives requires the efficient and effective use of the diplomatic, informational, economic, and military instruments of national power supported by and coordinated with those of our allies and various intergovernmental organizations (IGO), nongovernmental organizations (NGO), and regional organizations. 51 Interagency coordination is the coordination that occurs between agencies of the United States Government (USG), including the DOD, for the purpose of accomplishing an objective. Similarly, in the context of DOD involvement, IGO and NGO coordination refer to coordination between elements of DOD and IGOs or NGOs to achieve an objective. 52 Interorganizational coordination is the interaction that occurs among elements of the DOD; engaged USG agencies; state, territorial, local, and tribal agencies; foreign military forces and JW01SG - 15

16 government agencies; intergovernmental organizations (IGOs); nongovernmental organizations (NGOs); and the private sector. Meeting the challenges of current and future operations requires the concerted effort of all instruments of US national power plus foreign governmental agencies and military forces and civilian organizations. 53 A full explanation of the fundamentals of interagency coordination can be found in JP 3-08 volumes I and II, Interagency, Intergovernmental Organization, and Nongovernmental Organization Coordination. LEVELS OF WAR Warfare is typically divided into three levels: strategic, operational, and tactical. These divisions have arisen because traditional war constrained forces to engage force-on-force, on the surface, at the tactical level, allowing effects to aggregate up from that level to the level of campaigns and other major operations, and finally to the level directly affecting an adversary s ability to wage war altogether. However, Airmen should not define a given level by the specific weapons used, or on the targets attacked, but on the level of desired effects one wishes to create. A given aircraft, dropping a given weapon, could conduct a tactical, operational, or strategic mission, depending on the planned results. Given airpower s inherent flexibility, any tactical mission with a given aircraft dropping given weapons can deliver a mix of intended effects, at all levels, from tactical to strategic. Effects at the strategic level of war impair the adversary s ability to carry out war or hostilities in general. Strategic effects should neutralize the adversary s centers of gravity (COGs). At this level the US determines national or multinational (alliance or coalition) security objectives and guidance, and uses all national resources to achieve objectives and desired end states. These national objectives in turn provide the direction for developing overall military objectives, which in turn are used to develop the military objectives and Strategy for each theater or operation. Strategy is aimed at outcomes, thus strategic ends define this level. In some circumstances, there may be value in distinguishing between the nation s Strategy as a whole and what might be termed the theater-strategic level, at which particular combatant commanders (CCDRs) determine and direct the overall outcomes of major operations (or wars ) taking place within their particular areas of responsibility (AORs), explicitly tying these theater-strategic aims to overarching national Strategy and Policy. In general terms, the strategic level of war addresses the issues of WHY and WITH WHAT we will fight and WHY the enemy fights against us. The operational level of war lies between the strategic and tactical levels. At this level, campaigns and major operations are designed, planned, conducted, sustained, assessed, and adapted to accomplish strategic goals within theaters or areas of operations. These activities imply a broader dimension of time or space than do tactics; they orchestrate tactical successes to achieve objectives at higher levels. The decision-making products at this level of planning identify required forces and resources balanced against operational risk. Operational effects such JW01SG - 16

17 as air, space, and cyberspace superiority, defeat of enemy surface forces, isolation of enemy forces in the battlespace, and disruption or destruction of enemy leadership functions are the means with which the operational commander supports the overall Strategy. Operations involve the integration of tactical military missions and engagements to achieve strategic ends. Planning at the operational level of war determines WHAT we will affect, with WHAT courses of action, in WHAT order, for WHAT duration, and with WHAT RESOURCES. At the lowest end of the spectrum lies the tactical level of war, where individual battles and engagements are fought. While resulting effects may be described as operational or strategic, military actions occur almost entirely at the tactical level. Thus, even a global strike mission intended to produce a direct strategic effect on an adversary COG is ultimately a tactical action. To the Airman, the distinction between this level and higher levels of war is fairly clear-cut; Airmen tend not to fight large-scale battles (as surface forces use the term) but focus at the tactical level on individual engagements and missions. The tactical level of air, space, and cyberspace warfare deals with how forces are employed, and the specifics of how engagements are conducted. Tactics are concerned with the unique employment of force, so application defines this level. In short, the tactical level of war deals with HOW we fight. 54 Knowing the levels of war not only enable us to see where we fit in to the bigger picture, but also allows us to help our Airmen understand how their actions contribute to achieving our Nation s objectives. See below for a fictitious WWII example of these levels of war and how each action leads to attaining higher level function. The tactical actions in red are where our Airmen likely perform their missions. The blue represents a larger operation that depends on the tactical level actions to succeed. Finally, the items in black represent Campaigns that depend on each Operation to succeed. Completing the Strategy not only meets our military objectives outlined in the NMS but also our national goals in the National Security Strategy. JW01SG - 17

18 As you can see, Policy begins with our leadership s mental image of the world and is codified in several documents such as the NSS, NDS and NMS. From these documents we get national objectives or enduring interests that focus the actions of our Instruments of National Power. We also learned that Doctrine is the tried and true method of accomplishing a task. Since time and effort is expended to determine the best way to accomplish a task, Doctrine, especially Joint Doctrine will be followed unless a very good reason exists to deviate. There are however situations where a Commander will employ Operational Art and consider Contextual Elements that cause a deviation from Doctrine. Operational Design gives a Commander the structure needed and the overhead guidance from senior leadership to ensure that any Strategies are aligned with and spur the attainment of a national objective or enduring interest. The Strategy we have learned is how a Commander chooses to accomplish an objective. The nature of how we fight wars has changed considerably. We not only fight Joint today, we also fight alongside Multinational Partners and integrate with other government agencies. Finally we ended on a short discussion of the levels of war and how we fit into the bigger picture. This lesson will link to all other Joint Warfighter lessons and will expand your perspective as you serve in higher leadership roles. JW01SG - 18

19 Homework Assignment PART I: Match the key terms listed below with the corresponding short descriptions. a. Doctrine b. Fundamentals of Interagency Operations c. Fundamentals of Joint Warfare d. Fundamentals of Multinational Operations e. How Joint & Service Doctrine are related f. Information Operations g. Instruments of National Power h. Interagency Coordination i. Joint Doctrine j. Multinational Operations k. National Military Strategy l. National Security 1. A collective term encompassing both national defense and foreign relations of the United States 2. A document approved by the Chairman of the Joint Chiefs of Staff (CJCS) for distributing and applying military power to attain National Security Strategy (NSS) and National Defense Strategy (NDS) objectives 3. Fundamental principles by which the military forces or elements thereof guide their actions in support of national objectives - It is authoritative but requires judgment in application 4. Using each service s unique strengths, theory and experiences to contribute to the larger task of determining the best way to accomplish a task as an integrated team 5. Fundamental principles that guide the employment of US military forces in coordinated action toward a common objective 6. Diplomacy, information, military, and economy 7. Military actions to attack an adversary s information and related systems while defending our own 8. Team warfare formed from the core of Service skills that effectively integrates joint forces in a way that exposes no weak points or seams to an adversary 9. A collective term to describe military actions conducted by forces of two or more nations, usually undertaken within the structure of a coalition or alliance 10. Respect, rapport, knowledge of partners, patience JW01SG - 19

20 11. The cooperation and communication that occurs between agencies of the United States Government (USG), including the Department of Defense (DOD), to accomplish an objective 12. Efficient and effective use of the diplomatic, informational, economic, and military instruments of national power supported by and coordinated with those of our allies and various intergovernmental, nongovernmental, and regional organizations JW01SG - 20

21 PART II: Match the key terms listed below with the corresponding short descriptions. a. National Security Council g. Operational Level of War b. Enduring Interests h. Purpose of Military Doctrine c. Origin of Policy i. Purpose of The NSC d. National Security Strategy j. Service Doctrine e. Operational Art k. Strategic Level of War f. Operational Design l. Tactical Level of War 1. The President's principal forum for considering national security and foreign Policy matters with his senior national security advisors and cabinet officials 2. Advise and assist the President on national security and foreign policies; and coordinate these policies among various government agencies 3. The administration s mental image of the world 4. A document approved by the President of the United States that expresses vision, what the U.S. stands for, and a sensing of how the instruments of national power will be arrayed 5. Security, Prosperity, Universal Values, and an International Order advanced by U.S. leadership 6. Considerations on how a job should be done to accomplish military goals 7. Reflects Service specific capabilities and guides the application of Service forces 8. The level of war at which a nation, often as a member of a group of nations, determines national or multinational (alliance or coalition) strategic security objectives and guidance, and develops and uses national resources to achieve these objectives 9. The level of war at which campaigns and major operations are planned, conducted, and sustained to achieve strategic objectives within theaters or other operational areas 10. The level of war at which battles and engagements are planned and executed to achieve military objectives assigned to tactical units or task forces JW01SG - 21