Command and Control of a Multibrigade Alliance Task Force
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NATO’s Amphibious Forces Command and Control of a Multibrigade Alliance Task Force Gene Germanovich, J.D. Williams, Stacie L. Pettyjohn, David A. Shlapak, Anthony Atler, Bradley Martin C O R P O R A T I O N For more information on this publication, visit www.rand.org/t/RR2928 Library of Congress Cataloging-in-Publication Data is available for this publication. ISBN: 978-1-9774-0236-3 Published by the RAND Corporation, Santa Monica, Calif. © Copyright 2019 RAND Corporation R® is a registered trademark. Cover: Photo by Robert L. Kunzig , NATOChannel. Limited Print and Electronic Distribution Rights This document and trademark(s) contained herein are protected by law. This representation of RAND intellectual property is provided for noncommercial use only. Unauthorized posting of this publication online is prohibited. Permission is given to duplicate this document for personal use only, as long as it is unaltered and complete. 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Support RAND Make a tax-deductible charitable contribution at www.rand.org/giving/contribute www.rand.org Preface In 2017 and 2018, the RAND Corporation designed and facilitated a series of wargames and seminars on behalf of the Amphibious Leaders Expeditionary Symposium (ALES), a forum for general and flag officers to discuss opportunities for improved interoper- ability, command and control (C2), and utilization of amphibious forces within the North Atlantic Treaty Organization (NATO). With a scenario centered on confronta- tion with a near-peer competitor providing context, maritime and amphibious leaders explored how to leverage the Alliance’s existing amphibious capacity by aggregating national capabilities under a coherent C2 structure. This report provides a summary of RAND-facilitated ALES events, the method- ology employed, and the resultant observations and recommendations. We also high- light several overarching findings from the research to inform NATO’s evolving com- mand structure, upcoming exercises, and planning for collective defense. This research was sponsored by U.S. Marine Corps Forces Europe and Africa and conducted within the International Security and Defense Policy Center of the RAND National Defense Research Institute, a federally funded research and develop- ment center sponsored by the Office of the Secretary of Defense, the Joint Staff, the Unified Combatant Commands, the U.S. Navy, the U.S. Marine Corps, the defense agencies, and the intelligence community. For more information on the RAND International Security and Defense Policy Center, see www.rand.org/nsrd/ndri/centers/isdp or contact the director (contact infor- mation is provided on the webpage). iii Contents Preface ................................................................................................. iii Figures and Tables ...................................................................................vii Summary .............................................................................................. ix Acknowledgments .................................................................................. xix Abbreviations ........................................................................................ xxi CHAPTER ONE Introduction ........................................................................................... 1 Research Question and Method ...................................................................... 1 Participants ............................................................................................. 3 Limitations .............................................................................................. 4 Report Structure ....................................................................................... 5 CHAPTER TWO Strategic Context...................................................................................... 7 Interest in a Multinational Amphibious Capability (2014–2016) ................................ 8 Recent Developments (2017–2018) .................................................................11 CHAPTER THREE The Naples Tabletop ................................................................................15 Purpose .................................................................................................15 Event Design and Execution .........................................................................15 Participant Observations and Recommendations ................................................ 27 Chapter Summary ....................................................................................29 CHAPTER FOUR The Northwood High North Seminar ...........................................................31 Purpose .................................................................................................31 Event Design and Execution .........................................................................31 Participant Observations ............................................................................ 36 Chapter Summary ................................................................................... 38 v vi NATO’s Amphibious Forces CHAPTER FIVE The Stavanger Wargame ............................................................................39 Purpose .................................................................................................39 Event Design and Execution ........................................................................39 Participant Observations and Recommendations ................................................ 48 Chapter Summary ................................................................................... 50 CHAPTER SIX Conclusion ............................................................................................53 Findings from ALES Research ......................................................................53 Potential Next Steps for NATO .................................................................... 56 APPENDIXES A. Command and Control Constructs Explored ..............................................59 B. Scenarios and Forces .............................................................................63 C. DOTMLPF-I Summary.........................................................................71 D. Comparison of Allied Maritime Headquarters.............................................81 References .............................................................................................83 Figures and Tables Figures S.1. Simplified Centralized Amphibious Task Force Construct ........................xii S.2. Steps for Exploring Command and Control as of Mid-2018 .......................xv S.3. ALES Progress and Potential Next Steps for NATO .............................. xvii 1.1. Steps for Exploring Command and Control .......................................... 2 2.1. Amphibious Forces in Europe ..........................................................12 3.1. Baseline Naples Tabletop Command and Control Construct ......................18 3.2. Alternative Naples Tabletop Command and Control Construct ..................19 3.3. Naples Tabletop Move Zero Decisions on National Caveats ...................... 22 3.4. Naples Tabletop Game Two Command Structure ..................................25 3.5. Naples Tabletop Operating Area ...................................................... 26 4.1. Notional Centralized and Decentralized Amphibious Task Forces ...............33 5.1. Simplified Centralized Amphibious Task Force Construct ....................... 40 5.2. Stavanger Wargame Geography ........................................................41 5.3. Stavanger Wargame Blue Command and Control Construct ..................... 43 6.1. Steps for Exploring Command and Control as of Mid-2018 ...................... 56 6.2. ALES Progress and Potential Next Steps for NATO ................................57 A.1. Baseline Naples Tabletop Exercise Command and Control Construct ...........59 A.2. Alternative Naples Tabletop Exercise Command and Control Construct ....... 60 A.3. Simplified Centralized Amphibious Task Force Construct ....................... 60 A.4. Stavanger Wargame Blue Command and Control Construct ......................61 B.1. Naples Tabletop Red Force List and Objectives..................................... 64 B.2. Stavanger Wargame Geography ........................................................67 B.3. Stavanger Wargame Blue Task Organization .........................................69 Tables S.1. Participants at RAND-Facilitated ALES Events ..................................... xi 1.1. Participants at RAND-Facilitated ALES Events ...................................... 4 3.1. Naples Tabletop Summary of Available Assets .......................................17 3.2. Naples Tabletop Move Zero Decisions on Sourcing ................................ 20 4.1. Alternative Amphibious Command and Control Structures ...................... 36 B.1. Naples Tabletop Summary of Available