[...]
Command and Control (C2) Relationships
“Command and control is an art, not a science. It is very personality dependent.”18 −General Joseph Votel, commander, SOCOM, December 19, 2014
On March 2, 2002, U.S. and Afghan forces conducted Operation ANACONDA to dislodge Taliban, al-Qaeda, and other extremist elements from the Shahikot Valley. Coalition forces encountered a much larger number of enemy than anticipated, and the ensuing battle resulted in the loss of eight U.S. service members. A number of C2 issues contributed to inefficient execution, including the transfer of operational control (OPCON) from the Joint Special Operations Task Forces (JSOTFs) to the conventional JTF despite a special operations/indigenous forces main effort, national and theater SOF operating under separate chains of command, and the failure to include the Joint Force Air Component in the planning process until two days before the operation.
Improper or confusing command relationships can compromise a mission; conversely, effective C2 relationships can achieve unity of effort. For SOF, the JSOTFs have proven their worth during deployments throughout the last 15 years, forming the basis for SOF C2 at the tactical level. JSOTFs usually are built around the core of a U.S. Army Special Forces Group, commanded by a colonel. Because SOF had no operational level headquarters below the theater special operations commands, JSOTFs often were pressed into service as operational-level C2 structures. They often, however, lacked the staff, experience, and rank structure to function well at the operational level. At times, this resulted in the misuse of SOF and a lack of synergy between SOF and CF. When it became evident that SOF needed a more robust C2 capability in Afghanistan, SOCOM established Combined Joint Special Operations Task Force-Afghanistan (CJSOTF-A), in 2011 as a general/flag officer command to exercise OPCON of both national and theater SOF, and to facilitate the operational level integration of SOF and CF actions. A second SOJTF now performs similar functions in Iraq, but both remain temporary organizations. Recognizing the need for a permanent structure, the Army converted the First Special Forces Command Headquarters into a deployable 2-star organization that can serve as the core of a SOJTF. This new organization provides an operational level capability, but its existence does not mean a SOJTF will always command special operators and their CF partners, even when SOF are the main effort.
Confusion and disagreement often arises regarding who should retain OPCON of SOF.19 This disagreement causes uncertainty as to where I-3 efforts should occur and where processes should be institutionalized. Services that develop and field JTF-capable headquarters20 often believe the JFC should exercise OPCON over all subordinate forces in order to maintain unity of command. From the SOF perspective, command relationships must be purposeful. As one SOF general officer stated, “Integration does not mean CF absorbing SOF. Sometimes unity of effort is just as good as, or better than, unity of command.”21 SOCOM believes theater special operations commands (TSOCs) should retain OPCON of SOF, allowing the TSOCs to approve mission and task organization changes, as well as reallocate SOF assets to support higher-priority tasks. SOCOM believes JFCs should exercise tactical control (TACON) of SOF, allowing them to direct and control SOF actions within the JFC’s operational area. This “OPCON versus TACON” argument remains unresolved; it is perhaps so mission-dependent that it should remain open.
Many in the conventional force question whether unity of effort and supported/supporting command relationships are adequate for unified action. This includes giving SOF OPCON or TACON over CF assets. While cases in which CF units are attached to a SOF command do exist, as in village stability operations, a general resistance to SOF exercising OPCON or TACON over CF remains.22 The nature of CF and SOF command structures contributes to this resistance. SOF C2 tends to be very lean, agile, and flexible, without much excess capacity. CF C2 tends to be robust, capable, and resilient, but it is also slower to respond to changing situations. According to one senior CF leader who recently returned from Afghanistan, this results in some SOF leaders viewing the CF as too slow; conversely, some CF leaders view SOF as “cowboys” who are incapable of true joint C2. Absent a trusted personal relationship, these perceptions inhibit the assignment of units to each other’s formations, hampering and complicating cooperation.
Every senior leader interviewed for the Chairman’s SOF-CF I-3 study stressed the importance of personal relationships.23 Whether forged in battle or formed through interactions during training and education, these longstanding connections reduced resistence toward integration and enhanced cooperation. U.S. Army and U.S. Marine Corps leaders were particularly impressed with the positive effects trusted relationships had on enhancing communication and leveraging each other’s capabilities. Senior leaders also understand that as combat operations decrease, the opportunities for developing trusted relationships will decrease as well unless the services and combatant commands are proactive in developing and supporting them in other venues.
Liaison elements help mitigate the lack of trusted relationships, and a general consensus exists that SOF liaison elements at CF headquarters play a critical role in SOF-CF I-3.24 Since 2001, the number and size of SOF liaison elements expanded from a few personnel in key areas to encompass CF organizations and interagency partners. These SOF liaison elements facilitate communication, maintain trust, and bolster relationships. While CF liaison elements to SOF headquarters also play a role, many participants thought SOF liaison components in CF organizations provide adequate communication and kept both headquarters informed of the other’s operations. Despite their utility, liaison officer positions often are not authorized on manning documents, and they may become the first positions to be cut as personnel authorizations decrease.
[...]
Conclusion
“Special Operations Forces and Conventional Forces partners must continue to institutionalize integration, interdependence, and interoperability.”31
−General Joseph Votel, commander, SOCOM, January 27, 2015
SOF-CF I-3 is the glue that holds these two elements of the joint force together, making it more effective and efficient in nearly any situation. This integration has never been more effective, but institutionalization has not kept pace. Failure to institutionalize I-3 will create significant challenges for the future joint force.
The DOD has not completely lost the initiative, and unique processes are not required to preserve the integration developed during the past 15 years. DOD leadership can mitigate many of the institutionalization shortfalls by changing some of the ways the department trains, educates, and resources the joint force. In this context, the services endorsed implementation of 23 recommendations from the SOF-CF I-3 Study Report, several of which are already being put into practice. For example, SOF-CF I-3 is now defined in Joint Publication 3.05-1 “Unconventional Warfare;” the Joint Staff J7, in concert with SOCOM, is identifying and/or developing appropriate Universal Joint Tasks; and the Office of the Secretary of Defense is taking steps to identify funding levels needed to preserve SOF-CF I-3 gains during joint exercises.
The state of SOF-CF I-3 is as dynamic as the operational environment. The roles of SOF and CF will continue to evolve as the joint force adapts to the changing operational environment. While the joint force stands at a time of unprecedented success in integrating SOF and CF, we will pay a heavy price in blood and treasure if we fail to preserve this progress. PRISM
Nenhum comentário:
Postar um comentário