More allies,weaker missions? How junior partners contribute to multinational military operations

There is a growing consensus that multinational military operations are often less effective than the theoretical sum of their constitutive parts. Multiple chains of command, restriction on intelligence sharing, and capability aggregation problems can reduce fighting power. However, partners may be necessary to provide legitimacy to an intervention. As such, most studies assume that the state leading a coalition (usually the United States) has to accept a degree of operational ineffectiveness in order to gain political benefits from the participation of junior partners to a multinational military operation. However, such analysis puts all junior partners under the same category, without taking into account the differentiated contributions of those junior partners based on their relative military power and international status. This article explores variation between the junior partners’ contributions and their impact on coalition political and military dynamics. It teases out the implications of adopting a fine-grained analysis of junior partners.     

The strategic purpose of individual augmentee officers for junior partners in multinational military operations

ABSTRACT

This article examines the strategic purpose of Individual Augmentee Officers (IAOs) for junior partners in multinational military operations through an exploratory case study of Danish IAOs in Iraq and South Sudan between 2014 and 2017. IAOs are individual officers who are moved from their normal functions to be seconded to other units of the armed forces of their own or another country or an international institution. The study concludes that IAOs function as strategically important, yet not necessarily indispensable, supplements to military contingents in several ways: making tangible contributions to the overall mission (contributing), gaining access to information, knowledge, and experience (learning), and lobbying decision-making processes within mission headquarters (lobbying). The usefulness of IAOs depends on whether the junior partner has specific interests and a significant presence in the theatre and whether the mission is conducted as a UN mission, a NATO mission, or an ad hoc coalition.     

Conditional commitments: Why states use caveats to reserve their efforts in military coalition operations

Why do states make substantial military contributions to coalition operations, while at the same time apply reservations, or caveats, to how the coalition can use the military contributions? Caveats rose to prominence in defense and policy circles with NATO’s campaign in Afghanistan. In the scholarly security literature, the term remains a buzzword for all types of reserved efforts by states in coalition warfare, but there are few theoretical accounts addressing caveats. This article contributes to the knowledge gap on caveats through a comparative case study of Denmark’s, the Netherlands’, and Norway’s contributions to NATO’s intervention in Libya in 2011. It demonstrates that caveats can occur through three different causal pathways: compromises from domestic bargaining, handling of alliance commitments, and implementation and civil–military relations. Insights into the complexity that causes caveats are highly relevant for both political and military decision-makers that are trying to coordinate states’ effort in coalition operations.     

The Weight of the Past(s): The Impact of the Bundeswehr’s Use of Historical Experience on Strategy-Making in Afghanistan

This article seeks to explain the basic dynamics of the development of the German military approach in Afghanistan between 2003 and 2010 by looking at the impact of the Bundeswehr’s established uses of historical experience. First, the German military approach in Afghanistan has slowly evolved from a peacebuilding and mediation mission towards a full-fledged combat deployment. Second, the Bundeswehr’s exclusive focus on the World War II experience has contributed to the emergence of the Balkans experience as a formative experience that shaped initial operational thinking in Afghanistan. Third, because a thorough debate on the historical foundation of counterinsurgency remained absent, the operational shift in 2009 was perceived as a return to ‘classical’ military tasks and thus led to an almost exclusive focus on training for combat.     

The socialization of military power: security cooperation and doctrine development through multinational military exercises

Multinational Military Exercises (MMEs) are often viewed by states as opportunities to increase interoperability, improve cooperation, and solve common security problems. We argue that in addition to this, MMEs work as tools to shape the shared beliefs of coalition partners surrounding threat. Specifically, MMEs allow multinational forces to identify best practices, consolidate beliefs, and codify behavior through doctrine, typically by means of some institutional process. We examine our argument on MMEs through an analysis of various multinational and coalition partner efforts to identify security threats and cooperate through the development of common doctrine at the strategic, operational, and tactical levels of warfare. Our analysis suggests that the use of MMEs for doctrine development does help to socialize states in terms of identifying common threats and subsequently sharing a process by which to address them.     

Less than Meets the Eye

Observers of United States (US) interventions have almost universally characterized the 1994 Haiti intervention as multilateral, a model for how international cooperation can achieve common security goals. A closer analysis of the intervention reveals that the planning and execution of the intervention were almost entirely unilateral and therefore cost the US few if any of the theoretical costs of coalition warfare, including interoperability and policy compromise. Mapped onto the unilateral strategy and operation of the intervention, however, was a multilateral diplomatic effort that secured United Nations Security Council authorization and provided a cover for an intervention that the US had already planned and intended to execute with or without that authorization. That the US sought a multilateral cover for an intervention that it could easily accomplish unilaterally shows the importance of two factors: A domestic audience that opposed unilateral peacekeeping but would accept using US resources as part of a broader multilateral operation, and a local population that would be more responsive to a multilateral coalition than a use of force that was perceived to be unilateral. The Haiti intervention shows that the determinants of success in operations other than war are as much political as military. When the US already has overwhelming military superiority vis-à-vis its adversary, building military coalitions becomes as much about enlisting political support as aggregating material capability.     

The politics of multinational military operations

Today, few countries fight alone; most fight as allies or partners in multilateral campaigns. The end of the Cold War opened a window of opportunity for multinational military operations (MMOs). These have seen varying degrees of participation, enthusiasm, and success. This special forum is devoted to the politics of multilateral warfare including their formation, maintenance, and durability. The introduction sketches past research and derives some key questions of continuing relevance. The contributions shed light on the domestic and international politics of MMOs, focusing on the implementation of national restrictions and their repercussions for MMOs, party politics of military intervention, the conditions under which states decide to defect from military operations, and the role of junior partners in MMOs. In sum, this forum offers a fresh look at the politics of MMOs, including conceptual contributions to the study of national restrictions, domestic constraints, and coalition warfare.     

A Good Ally - Norway and International Statebuilding in Afghanistan, 2001-2014

The article examines the findings of the Commission of Inquiry established by the Norwegian government in 2014 to evaluate all aspects of Norway’s civilian and military contribution to the international operation in Afghanistan from 2001 to 2014. Concerned with the wider implications of the Commission’s findings, it focuses on two issues in particular: (1) Norway’s relations with the US, a close and long-standing strategic ally whose resources, capabilities and dominance of decision-making dwarfed that of all other coalition partners in Afghanistan; and (2) Norway’s record in the province of Faryab, where, from 2005 to 2012, a Norwegian-led Provincial Reconstruction Team was charged with bringing security, good governance and development to the province. How Norway prioritised and managed relations with the US highlights and helps to problematise the challenges – political, practical and moral – facing small and medium-sized powers operating in a coalition alongside the US. Norwegian efforts in Faryab are revealing of the dilemmas and contradictions that plagued and, ultimately, fatally undermined the international intervention as a whole. As such, Norway’s experience provides a microcosm through which the inherent limitations of the attempt to transfer the structures of modern statehood and Western democracy to Afghanistan can be better understood.     

Using strategic culture to understand participation in expeditionary operations: Australia,Poland, and the coalition against the Islamic State

This article investigates how strategic culture influenced the decision-making of Australia and Poland regarding the global coalition against the Islamic State. In the coalition, Australia has followed its tradition of active participation in United States-led operations, while Poland has embarked on a more cautious line, thereby breaking with its previous policy of active participation. The article examines how Australian and Polish responses to the coalition were shaped by five cultural elements: dominant threat perception, core task of the armed forces, strategic partners, experiences of participating in coalitions of the willing, and approach to the international legality of expeditionary operations. It finds that Australia and Poland differed on all five elements but that the major differences are found in dominant threat perception and core task of the armed forces.     

Military deployment and international terrorism: do location and mission type matter?

Extant literature documents a relationship between military deployment and the risk of an international terrorist attack against citizens of the deploying country. It appears that deployment significantly increases the possibility of terrorist actions in the home country. In particular, if country A decides to send troops to nation B, then citizens of the former country are more likely to fall victim of an attack carried out by a terrorist organisation originating from the latter country. Contributing to this line of literature, we further refine this relationship by distinguishing between regions where the troops are sent as well as by introducing differences between types of deployment. Our results indicate that missions to Asia and the Middle East are more dangerous than missions to other regions as reflected by the terrorist threat in the home country. Robustness tests do however show that the significance of the location variable Asia is predominantly attributed to the mission to Afghanistan. As for types of deployment, only ad hoc missions seem to increase the risk of an attack, whereas no significant results are found for other missions such as operations under UN and NATO flag. Leaving out the missions to Iraq and Afghanistan however also increases the danger resulting from missions by fixed coalitions. Our results find however no evidence that ‘wearing a blue helmet’ increases the probability of a terrorist attack at home.     

装备作战试验关键问题研究

装备建设服务于国家军事战略,能否将管用、好用的装备交付给军方,是国防工业部门和装备试验靶场共同的使命。除了要确保装备技术性能符合指标要求以外,还要确保交付给军方的装备能够适应不同的作战环境,并且能够在作战行动中发挥应有的作用。因此,作战试验是值得研究并且需要逐步开展的重要试验活动。文章将从国外在装备作战试验领域的具体做法入手,分析作战试验与研制试验的区别。在此基础上,对开展装备作战试验须重点把握的问题进行探讨,为开展装备作战试验提供理论支撑。     

The Dutch COIN approach: three years in Uruzgan, 2006–2009

Rarely has a military commitment led to such intense discussion in the Netherlands as the Task Force Uruzgan (TFU) mission in Afghanistan. In February 2010, the Netherlands' coalition government even collapsed after the two largest parties failed to agree on the withdrawal of Dutch troops from Afghanistan later this year. This article deals first of all with the difficult discussion over the Afghanistan mission of the TFU. The authors then subject three ISAF operations to close scrutiny. The authors provide some suggestions to help understand better this pivotal point in the execution of the whole operation and thus give a fuller picture of the Dutch counterinsurgency approach in Uruzgan.     

Feeding Bread to the Luddites: The Radical Fundamentalist Islamic Revolution in Guerrilla Warfare

This study examines the war that the United States has waged since September 2001 as a global counterinsurgency. Placing the war against al-Qaeda and its allied groups and organizations in the context of a global insurgency also presents implications for doctrine, interagency coordination and military cultural change. The first part of the article offers a distilled analysis of al-Qaeda and its associated networks. The second section examines the US military in the context of the Western way of war, with the attendant military-cultural impediments to adapting to an enemy who embraces a very different approach to war. The third section aims to define and describe the nature of the war that America and its coalition partners are trying to wage. The concluding section offers the most value as it refines and distills the work of several international security and military thinkers to arrive at some imperatives for successfully prosecuting this type of war to its end.     

Iraq, 2003–2011: succeeding to fail

ABSTRACT

This study examines the US experience during the Iraq war, from the planning phase that began in 2001 to the withdrawal of US forces in 2011. It reveals a dearth of planning and intelligence leading up to the invasion; reluctance by conventional coalition military forces to conduct reconstruction, political and security capacity-building; and, later, full spectrum counterinsurgency operations. These forces took on some missions traditionally reserved for special operations forces, and they increasingly assumed diplomatic roles as they interfaced with the Iraqi leadership and local kingpins. Although these efforts yielded some impressive organizational learning and limited operational successes, they were hampered by lack of adequate preparation, a poor understanding of the human terrain, shortsighted strategies, and ultimately a dearth of political will to stay the course. The outcome was far from the model Middle East democracy envisioned by the invasion’s architects, and the American experience in Iraq instead became a cautionary tale for military intervention.     

Implementing sustainable mission command in the Hellenic Army

The modern Mission Command philosophy in military operations originated with the German concept of Auftragstaktik (mission tactics). It emphasizes in general terms the exercise of disciplined initiatives by subordinates during the execution of mission-type orders in the course of military operations that are conducted within the overall intent of a commander. The present paper contains an overview of the historical evolution of the mission command concept and its application. The paper compares the mission command concept with the detailed or linear method of command. This paper focuses on the relevance of the mission command concept for the Hellenic Land Forces (HLF) in Greece. The paper provides a historical account on when and where mission command was successfully exercised by the Hellenic Armed Forces in the modern military history of Greece. The authors support the premise that the mission command concept is essential for safeguarding Greek national security in the current environment of evolving symmetric and asymmetric threats, and in meeting operational challenges in a diverse and difficult terrain. The paper examines the cultural reasons that have impeded the adoption of the mission command concept within the HLF and recommends a three-phase model for its permanent implementation.     

Self-Defense Militias,Death Squads,and State Outsourcing of Violence in India and Turkey

What explains the variation in states’ nonstate partners in civil warfare? States often use nonstate actors to do what their regular military forces cannot do well – navigate the local population. Some of their nonstate partners are ordinary civilians, while others are battle-hardened fighters with a rebellious or criminal past. The choice of proxy carries serious implications for the patterns and effects of violence during civil war, human rights, and international security. This article is the first to disaggregate the nonstate counterinsurgents and offer an explanation for why and how states use each type. It brings together the politics of collaboration with the politics of exploitation. The article shows that the state’s use of nonstate proxies is shaped by the supply of willing collaborators, the state’s ability to exercise control over them, and the trade-offs underlying the use of the different types of nonstate actors. The empirical evidence used to support this argument comes from a novel, comparative study of Turkey’s counterinsurgency campaign against Kurdish separatists and India’s counterinsurgency against Kashmiri separatists. The original data were collected through fieldwork in the disputed territories of each country.     

Multinational counterinsurgency: the Western intervention in the Boxer Rebellion 1900–1901

This article proposes a case study of the multinational counterinsurgency operations that occurred in China during the Boxer Rebellion in 1900–1, to provide a better understanding of the political and military dynamics specific to this type of mission. The study focuses primarily on the nature of the cooperation on the ground, the various national approaches to counterinsurgency, and the asymmetry of strategic approach between the Westerners and the Chinese. A discussion is also proposed, highlighting that combined counterinsurgency is not per se an obstacle to the unity of command, but that politically international coalitions create unique challenges to counterinsurgency operations.     

遥测参数数据载荷状态判别集成学习方法

针对载荷单机设备遥测参数维度高、数据量大、存在类别不平衡、无法直观判别单机设备运行情况等问题,考虑到航天任务对可解释性的要求,提出一种基于信息增益参数特征选择和集成学习方法的载荷单机状态快速识别方法。采用统计量性质和信息增益子集搜索方法对遥测数据进行特征筛选降维,通过集成学习模型算法实现载荷单机设备状态的自适应识别分类。所提方法将信息增益的参数分类信息量评价准则和集成学习拟合能力强、类别不平衡下准确率高和抗噪能力强等优点相结合,兼顾模型特征和结果的可解释性,提供了重点参数发现功能。采用科学卫星任务真实载荷遥测参数数据对该方法进行了验证,整体识别准确率高于90%,少数样本亦可准确识别,整体效果可达到在轨任务要求,证明了所提方法的有效性和实用性。     

‘Second-Class’: The Grievances of Sunni Officers in the Syrian Armed Forces

The defection of a significant number of Sunni officers amidst the ongoing turmoil in Syria created a unique opportunity to get access to original data on the Syrian armed forces. This study draws on extensive fieldwork to probe the sectarian question in the Syrian officer corps. On the basis of a series of interviews conducted throughout the summer of 2014, I investigate the politics and consequences of sectarian stacking in the Syrian military as well as the root causes of Sunni officers’ grievances and alienation. My conclusions draw on an original database that compiles the sectarian affiliations of 81 prominent officers who occupied the most senior military positions under Bashar al-Asad.     

Rethinking military behavior during the Arab Spring

Why did some Arab militaries remain loyal to authoritarian rulers amid mass uprisings during the Arab Spring while others defected to the opposition? One popular explanation shows this variation with reference to the degree of military institutionalization: institutionalized militaries defected, while patrimonial militaries remained loyal. This article argues that the institutionalization hypothesis does not provide a complete account of the mechanisms through which the degree of military institutionalization leads to either defection or continued loyalty. This shortcoming stems from the fact that scholars have treated military institutionalization as a catch-all concept for three distinct variables: ethnic stacking of the military, patronage distribution, and organizational factionalization. Examining the interaction between these variables highlights the mechanisms through which military defection occurs, and therefore that disaggregating institutionalization into its component parts provides a more complete explanation of military behavior during the Arab Spring.