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CMJ Vol 4-No. 4 NATO NATO Photo NATO Beach landing teams in Scotland in September 2003 during Exercise “Northern Lights”, where Allied Command Transformation carried out its first NATO experiments. INSTITUTIONALIZING CHANGE IN NATO by Lieutenant-General J.O. Michel Maisonneuve “The only constant is change itself.” This article addresses NATO’s efforts to transform by setting out what transformation means in NATO and or decades, the management of change has provided discussing the manner in which transformation will be business professionals with controversial subject applied within the Alliance. matter to explore and debate. The 1990s were especially rife with articles and books touting WHAT IS TRANSFORMATION? the opportunities and pitfalls associated with F‘change management’, ‘continuous improvement’, and ATO sees transformation as a process and not an ‘re-engineering’ — three of a host of buzzwords developed Nend-state; what is important is the journey, not the by the gurus. To cope with change, many organizations destination. Managing transformation implies always looking created temporary staff divisions that were intended to ahead for new concepts, ideas and technology, and quickly remain in existence only as long as the march towards an integrating the useful ones into all aspects of the organization — ‘end-state’ continued. Today, however, it is acknowledged its capabilities, doctrine, training, and education. In NATO, that change may not be a march towards an end state at transformation will underpin a new concept for future all, but instead may be a perpetual state of affairs. So the next joint and combined warfighting. It is a cyclical process, step in the transformation of ‘change management’ would seem requiring a different mindset, a different culture. For this to be the creation of specific organizations whose mandate reason, an organization such as ACT can serve as a forcing is to manage change, and, further, to promote innovation, agent for change, as it is a recognized feature of change experimentation and lateral thinking. Change has gone from management that institutional inertia will be an obstacle to being a negative activity that needed to be managed to a required change. positive one that should be promoted and encouraged. ACT will be both a sensor and a catalyst for The US military began to see the need ten years ago, and transformation. It will be a two-way street for bridging mandated one of their Unified Commanders with the task of military and security thinking intellectually, culturally, and, managing change. Just four years ago, this organization was ultimately, technically, on a constant basis across the Atlantic. renamed Joint Forces Command (JFCOM), and ‘transformation’ was added to the list of its missions. NATO has now taken a similar step, and Allied Command Transformation (ACT) was brought into existence on 19 June 2003, with its Lieutenant-General J.O. Michel Maisonneuve is Chief of Staff, (Headquarters Supreme Allied Commander Transformation — Headquarters Supreme Allied Commander Transformation HQ SACT) in Norfolk, Virginia. in Norfolk, Virginia. Winter 2003 – 2004 ● Canadian Military Journal 35 WHY NATO NEEDS Five “Pillars” of Transformation TO TRANSFORM Strategic Concepts, Force Interoperability concepts, policy and or several reasons, there has been Doctrine & Policy ➟ procedure development and implementation F intense pressure on NATO to transform. First, the post-9/11 security context made change imperative. The transformation of Joint Rqmts & Capabilities Identification and Implementation of required defence into security, and the threat from Planning & Implementation capabilities within the applicable Defense Planning ➟ disciplines bi-polar to asymmetric, has led to the need for a commensurate response from security organizations. A ‘platform-oriented’ military Joint & Combined Future Coordination and Management of NATO research Capabilities Research & culture must mutate into network-oriented and technology initiatives Development ➟ systems, and there must be a progression from deconfliction of separate warfighting entities to the full integration of service Synchronization of joint warfighting capabilities. Joint Experimentation & experimentation, exploration and development Exercises ➟ of future concepts, and integration of joint and combined capabilities Even before the events of 11 September 2001, NATO had begun to realize that Leader Development, Establishment of Joint Joint Training & out-of-area operations could provide a Interoperability & Integration Centre, Control of Education relevant role for its capabilities. Historic ➟ NATO Education/Training entities, Standarization decisions taken at the Heads of State and Government Summit in Prague in November Figure 1 – Five ‘Pillars’ of Transformation 2002 cemented this thinking, and resulted in the creation of the NATO Response Force (NRF), changes to the command structure, and an thinking has in effect been institutionalized, since every effort to encourage nations to commit capabilities that issue is examined from at least 19 (soon to be 26) different were lacking. cultural views! At the same time, there was acknowledgement that an ACLANT was decommissioned on 19 June 2003, and intellectual and technological gap in warfighting concepts its flag lowered from the mast after more than 50 years and capabilities between the US and other Alliance nations of effective service. Allied Command Transformation was was increasing. One way to reduce the gap and remain then officially born, and Admiral Ed Giambastiani of the abreast of new developments within the US was for NATO US Navy was appointed as its commander by the NATO to ensure that the transatlantic link remained strong. Only Secretary-General. In that Admiral Giambastiani also thus would NATO be able to provide forces to operate commands JFCOM on the US side, NATO achieves signifi- alongside or with the US, be it in high-intensity warfighting, cant synergy from his appointment. counter-insurgency or peace operations. The new role of ACT is simple. It is NATO’s forcing THE CREATION OF ACT agent for change (See Figure 2), and it has begun to influence all aspects of NATO’s activities. ne of the structural decisions made at the Summit O in Prague was to go from two strategic operational BRINGING CHANGE TO THE ALLIANCE commands to one (ACE), with the other (ACLANT) becoming a functional transformational command. CT sees its principal ‘customer’ as the Strategic ACommand for Operations (SACEUR) and the operations Supreme Allied Command Atlantic (SACLANT) had NATO is currently running. This means that any innovation been an operational command concerned with security of the developed in any of the realms that are studied can be applied sea lines of communications, and its area of responsibility as soon as feasible to ongoing operations. (AOR) consisted of the Atlantic Ocean. The decision to restructure NATO meant that the new command’s AOR would become the future. ACT VISION STATEMENT “In NATO, The SACT Headquarters NATO’s forcing agent for change, leading structure was developed using the continuous improvement of transformation will a strict business modeling underpin a new approach, which enabled effective Alliance capabilities to uphold NATO’s concept for future management of the five basic global security interests. processes underpinning trans- joint and combined formation (See Figure 1). With Figure 2 warfighting.” this new command, lateral 36 Canadian Military Journal ● Winter 2003 – 2004 NATO NATO Photo NATO British and Dutch helicopters aboard the Royal Netherlands Navy’s landing craft Rotterdam during Exercise “Northern Lights”. The members of the Alliance are the other ‘customers’. changed from a system of post-mortem-type collection of All NATO nations are currently undergoing some level data to an immediate feed-back loop made possible by the of transformation in structure, doctrine and operational deployment of lessons-learned teams at the outset of missions. concepts. There is thus synergy in ACT being a virtual Through the coordination of educational curricula of NATO ‘hub’ for transformation, where good ideas are passed establishments, we hope to ensure that the newest concepts from nation to nation and to the entities and partners are taught and understood, as well as challenged. of ACT. (See Figure 3) One important asset of SACT Headquarters is its co-location in Norfolk with Headquarters The jewel in the transformational crown is the NATO Joint JFCOM, so NATO can easily stay abreast of transformational Warfare Centre (JWC) which was opened on 23 October 2003 developments within the US military. in Stavanger, Norway. This Centre will have both a static and deployable training mandate, enabling the training ACT as the HUB of Transformation of command elements of NATO forces. It will perform interoperability activities and experimentation, as well as training. As an example of its capabilities, General Tommy Nations Franks and his team rehearsed and trained for months at the US equivalent to the JWC before undertaking Operation Current ACO “Iraqi Freedom”. This new entity will enable the Alliance Operations ↕ ↕ to build staff skills and bring joint components together — to ↕ train instead of exercising. NATO ↕ Centres of ↕ One of the most useful tools for bringing trans- R&T Excellence formational ideas to fruition is the NATO Response ↕ Force (NRF). This network-enabled joint and combined force ↕ is meant to be the first line of operations for the Alliance. As well,
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