COALITIONS AND COMMAND AND CONTROL IN PEACE OPERATIONS

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COALITIONS AND COMMAND AND CONTROL

INPEACE OPERATIONS

PEACEKEEPING ARE COALITION OPERATIONS

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31 Nations

39 Nations62

Nations

46 12 20 39 479

55 58 313154 24

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DEFINITIONS

• Coalition– Ad hoc and situation specific– Temporary arrangements of expedience

• Alliance– Formal arrangements– Enduring nature– Signed treaty

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HISTORICAL REFLECTIONS

“If I must fight, let it be against a coalition”

- Napoleon

“There is only one thing worse than fighting with allies and that is fighting without them.”

-- Winston Churchill

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Levels of Operations – both Peace and War

Strategic

Operational

Tactical

Security Council

Secretary General

Head of Mission (HOM)Special Representative of Secretary General

Mission Headquarters/Staff

Secretariat

Force Commander, DSRSG HC, DSRSG RofL

Military Units Police Units

Chief Admin Officer

Regional Officials Logistics Units

Other organizations

Sets the Political goals,objectives and guidanceand provides resources

Translates political and military guidance and uses resources provided in aseries of campaigns that support achieving the political goals

Conducts specific operationsand tasks in support ofa planned campaign

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WHO PROVIDES PEACEKEEPERSSTRATEGIC DIRECTION?

• UN Security Council• Other nations• Host nation• Friends of xx peacekeeping mission• Key negotiators to the peace agreement• Secretary General• Other key diplomats

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BENEFITS OF COALITIONS

• Legitimacy

• Greater resources

• Synergy of effort

• Greater flexibility

• Moral & diplomatic support

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CHALLENGES FOR COALITIONS

• Training Standards are different

• Language/Culture

• Officer and enlisted relations

• Religious practices

• Command and Control arrangements

• National Policies

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PEACE OPERATIONS ARE COALITION OPERATIONS

• Military component– Various national contingents

• Political/diplomatic component– UN agencies, regional

organizations

• Humanitarian component– Other International

Organizations (IOs), NGOs, other nations

UN Mission Generic Organogram

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Chart from United Nations, Department of Peacekeeping Operationsand Department of Field Support, “Mission Start-up Field Guide for Senior Mission Managers of United Nations Peacekeeping Operations,”February 2008

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Multi-Dimensional UN Peacekeeping Operations are “Coalition Operations” in the broadest Sense

Makes Authority, Command, Control, Coordination, Cooperation… in Coalition Peacekeeping Operations a difficult Challenge!

UN Programsand Agencies

NGO’s

National DonorAgencies

MilitaryComponent

PoliceComponent

OtherComponents

-Human Rights-Electoral

-HumanitarianAssistance

Etc.

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COMMAND and CONTROLin Peace Operations

(plus COORDINATION and COOPERATION)

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Principles of War & Operational Art

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U.S. Principles of War•Mass •Objective•Offensive•Security•Economy of force•Maneuver•Unity of Command•Surprise•Simplicity

• Legitimacy• Perseverance• Restraint

U.S. Operational Functions•Intelligence•Command and Control•Fires•Maneuver and movement•Protection•Logistics

Both lists from U.S. Joint Publication 3-0, Operations

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COALITION MILITARY OPERATIONS

Experience in Multinational Coalition Operations shows that:

• Integrating military forces from different nations is complex and demanding on leaders:– Requires an understanding of coalition operations and skill on the

part of all military commanders, national military contingent seniors and other component leaders

– An awareness of the unique aspects of military coalition operations enables commanders and leaders to plan intelligently to avoid or properly deal with problems that experience shows will arise in any and all coalition operations

Creating this awareness, sensitivity and understanding among commanders and key staff is essential to

preparing for coalition operations

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HISTORICAL MODELS OF COALITION C2

• Parallel command

• Lead Nation

• Integrated command– Most UN peacekeeping

missions are integrated

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COMMANDThe Authority a Commander in the Military Service lawfully exercises over subordinates by virtue of

rank or assignment• Includes:

•authority and responsibility for effectively using available resources

•for planning employment of, organizing, directing, coordinating, and controlling military forces to accomplish assigned missions.

•responsible for health, welfare, morale and discipline of assigned personnel

Command has a legal status and denotes functional and knowledgeable exercise of military/police authority to attain

military/police objectives or goals

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COMMAND AND CONTROL The exercise of authority and direction by a

properly designated commander over assigned forces in accomplishment of mission.

Command and Control functions are performed:

•by a commander in planning, directing, coordinating, and controlling forces in the accomplishment of the mission

•through an arrangement of personnel, equipment, communications, facilities, and procedures employed.

The Commander must establish the system he will use for “Command and Control” based on hisassessment of the capabilities and needs

of his “Command”

COMMAND PHILOSOPHY

Centralized control

Decentralized control

Centralized control and decentralized execution

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TYPES OF COMMAND AND CONTROL

in Multinational Operations

• Integrated command approach

• Parallel command approach

• Lead nation command approach

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There are advantages and disadvantages to each!

Integrated Command

21 From U.S. Joint Publication 3-16, Multinational Operations

Parallel Command

22 From U.S. Joint Publication 3-16, Multinational Operations

Lead Nation Command

23 From U.S. Joint Publication 3-16, Multinational Operations

EXAMPLES OF UN C2

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UNMIK (1999-present) – Kosovo - Parallel Command Organization – UNMIK was UN, KFOR was NATO. NATO KFOR operated on integrated command structure

UNAMID (2003-present)– African Union/United Nations Hybrid operation in Darfur (Sudan)Parallel Command Structure with UN and African Union both providing forces

UNTAET (1999-2002) – East Timor. Initially a lead nation peacekeeping mission lead by Australia, followed by a UN integrated mission

MONUSCO (1999-present) – Congo – a completely integrated command and control force – the largest in the UN!

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Categories of UN “Command” Authority in UN Peacekeeping Coalitions

Key Terms and Concepts• Command **• National Command **• UN Operational Authority **• UN Operational Control **• UN Tactical Control• Administrative Control• Tasking Authority• Transfer of Authority

** separate slides to discuss

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UN OPERATIONAL CONTROL (UN OPCON)

“The authority granted to a military commander in United Nations Peacekeeping Operations to direct forces assigned so that the commander may accomplish specific missions or tasks which are usually limited by function, time, or location (or a combination), to deploy units concerned and/or military personnel, and to retain or assign tactical control of those units/personnel.”

Includes authority to assign tasks to contingent sub units as required by operational necessity

Does not include responsibility for personnel administration

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NATIONAL COMMANDNATIONAL COMMAND

“Exercise of command by National Authorities over National Forces deployed in peace

operations”

NOTE:

“Nations never cede full command authority over their deployed forces

…except in very unusual circumstance”

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NATIONAL COMMAND

UNSCSG/DPKO

NATIONAL MILITARY

HQ’s

US National CommandAuthority

SRSG

ForceCommander

NATIONALCONTINGENT

U.S. NATIONALCONTINGENT

NATIONALCONTINGENT

NATIONAL MILITARY

HQ’s

US GeographicCombatant

Commander

COMMANDCONTROL

Peacekeeping Mission

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JLOC: Joint Logistics Operations CenterCDU: Conduct & Discipline UnitJMAC: Joint Mission Analysis CellJOC: Joint Operations Center

UN Peace Operation Organizational Structure

Similar to the militaryintegrated command

structure

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WORKING WITH OTHER UN AGENCIESAND NON-GOVERMENTAL AGENCIES

UN Staff work for the Special Representative of the Secretary General

UN Agencies (World Food Program, UNICEF, UNHCR) are independent organization who work for the UN SYG and their donors. The do take some direction from SRSG.

NGOs are independent agencies who only work for their own organizations and their donors.

Success in working with these organizationsis COOPERATION AND COORDINATION

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EFFECTIVE COMMAND AND CONTROL

The commander must be able to understand and mesh national contingents’ capabilities, personal and

professional habits, training backgrounds, relevant national characteristics and national goals

The commander must clearly articulate mission’s intent, understand desired end-state, firmly establish appropriate

rules of engagement, and implement procedures that ensure unity of effort within military component and

synchronize military effort with efforts of other mission components to accomplish desired end state

LEADERSHIP IS THE KEY!

“Successful commanders in multinational environments focus on and inculcate a vision that infuses the whole coalition.”Larry Forster, “Coalition Leadership Imperatives” Military Review, Nov/Dec 2000

Patience Flexibility Shared responsibility/vision Develop trust Fairness and equitability Mission type orders Listen Transparency Team building Perseverance

EFFECTIVE COALITION LEADERSHIPCONSIDERATIONS

CONSIDERATIONS FOR MULTINATIONAL FORCES

TENETS of Multinational Ops

• Respect

• Rapport

• Knowledge of Partners

• Patience

UNITY OF EFFORT IS # 1 PRIORITY FOR A COALITION OF THE WILLING

From: U.S. Joint Pub 3-16, Multinational Ops

Major General P.J. Cosgrove,Former commander of International Forces in East Timor 4 April 2000Talk on Anzac Day at George Washington University

I found it critical to establish and meet the needs and concerns of each troop contributing nation, to achieve understanding, congruence, frequently by give and take and vitally, good will and cooperation.

LOGISTICS Alliances are better equipped to handle logistical concerns, however,

history has proven that coalitions of the willing are the normal approach.

Logistics in the UN system can be complicated. Ensure a proper MOU is created and all activities are covered.

BOTTOM LINE: Commanders must aware of the logistical

arrangements for each member of the contingent….what the UN provides and what the nation provides in terms of logistical support.

Are liaison teams necessary?… valuable?

and how are they formed?

LIAISON TEAMS

• Liaison officer must be knowledgeable of all aspects of their unit’s capabilities and limitations

• The best officers should be assigned to liaison teams• In multinational operations, liaison goes both ways

• Liaison officers are the directed telescope of their commanders (Napoleon)

• Liaison officers must be of sufficient rank to INFLUENCE THE DECISION MAKING PROCESS

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Preparing National Contingents for UN Peacekeeping

Coalition Military Operations…

• Make sure you understand the proposed Command

Relationships

• What Degree of Interoperability is Required?

• What are the Logistical Support Requirements for different

national contingents?

• Understand the potential “Friction” Points in the coalition– Are ROE appropriate and understood?

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COMMAND AND CONTROL IN UN PEACEKEEPING

• Command and Control over various components of UN PKO is an exceptional challenge

• For Military Component:

– Military personnel remain members of national armed forces– Full Command never given to UN,

only Operational Authority – Operational Authority exercised by UN in accordance with mandate and MOU

BOTTOM LINE

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