Command and Control Organization

Transcription

1 Command and Control Organization At the higher levels of command in multinational coalition operations, the function is more one of coordination than one of control, more one of cooperation than command. We need to develop doctrine to reflect and facilitate this reality. - Vice-Admiral Peter Cairns, Canadian Forces Organization plays a crucial role in multinational maritime operations determining how multinational maritime force (MMF) constituents interact and coordinate with other participating non-maritime forces. In certain operations the MMF may indeed be a component of a larger multinational force. The first critical step in the organization of a MMF is the resolution of command, control, coordination and cooperation issues. The organization must reflect consensus among the partners about the conduct of the operation. This chapter discusses various command and control structures that may be used in a MMF and examines national command structures and the important distinctions between organizing for multinational and single nation operations. Command and Control (C 2 ). The terms command and control are closely related and often used together; however, they are not synonymous. 1 Command and control are vertical relationships flowing down from above. Cooperation and coordination are horizontal relationships among elements at similar levels. Command is the authority vested in an individual of the armed forces for the direction, coordination, and control of military forces. Through this vested authority the commander impresses his will and intentions on his subordinates. Command may involve reorganizing existing forces by task or type, or for warfare or peacetime operational purposes. constituents: components consensus: general agreement vested: authority placed in someone encompasses: includes, contains principle: a rule of conduct, a fundamental truth, etc. assets: useful or valuable things Control is the authority exercised by a commander over part of the activities of subordinate organizations, or other organizations not normally under his command, which encompasses the responsibility for implementing orders or directives. All or part of this authority may be transferred or delegated. Cooperation is the relationship that exists between two or more commanders that harmonizes the direction, control, and sustainment of their respective forces to enable them to work as a team. Cooperation is the principle that allows different forces to work together. Coordination is the detailed interaction among force elements to ensure the highest possible cooperative effort. It usually involves coordination centers and detailed information flow among force elements. These relationships are defined to form a C 2 system which allows the Multinational Maritime Force Commander (MMFC), his staff and his subordinates to plan, direct and conduct operations. C 2 Principles. C 2 principles include: 1. Unity of Command. Unity of command is achieved by vesting the authority to direct and coordinate the action of all forces and military assets in a single commander. The composition of

2 multinational forces will largely determine the command relations by which this authority is achieved. However, constraints may be placed on the use of national force components and supporting national assets. Unity of command can also be constrained by military activities of other authorities within the commander s area of responsibility. Therefore, in a multinational maritime operation, unity of command may be unachievable. Nevertheless, successful operations may still be conducted if unity of effort towards the objective can be achieved. achieved: gotten as a result of an action or effort constraints: limitations liaison: intercommunication as between units hierarchical: arranged in order of rank succession: the act of coming next, as in holding an official position contingencies: possible alternate events or plans indivisible: that which cannot be divided exploit: to make use of for one s own profit crucial: essential; of the utmost importance 2. Integration of C 2 Structure. The command structure should ensure the most effective use of the capabilities of partners in the multinational operation. Separate national component commands may need to be established such as when a national joint force is placed under OPCON (Operational Control) of MMFC. When special operations forces are assigned or attached to an MMF, they normally operate as a separate component command. An efficient and comprehensive liaison structure between national chains of command is an essential element of the multinational force command structure. 3. Chain of Command. The structure of a C 2 system is normally hierarchical. Where necessary and appropriate, direction and orders to the next lower commander could include tasks for specific elements of his forces. 4. Continuity. C 2 should be continuous throughout an operation or campaign. The commander should arrange a succession of command and consider provision for an alternate HQ to meet operational contingencies. Command Responsibility and Freedom of Action. A commander s responsibility for the accomplishment of his mission is indivisible, but delegation of authority may be necessary or desirable. In delegating, commanders at all levels need to clearly state their intentions, designate the objectives to be achieved, and provide the resources and authority required by subordinates to accomplish their tasks. Thus, the commander generates the freedom of action for his subordinates to act, within the bounds set by his intentions, so that they can react quickly to unforeseen developments or exploit favorable opportunities. Successful delegation has two prerequisites: The commander must at all times have a clear picture of the overall situation in his area of operations and confidence in his subordinates abilities. The subordinate commander must fully understand his superior s intentions. Degrees of Operational Authority. Commanders and subordinates must understand the extent of authority granted in their command relationship. Because C 2 relationships are fundamental to the formation of an effective force, particularly an effective maritime force, it is crucial that commanders establish a common definition of the terms at the earliest

3 stages of an operation. The following discussion of degrees of operational authority is provided to facilitate this process Full Command. The military authority and responsibility of a superior officer to issue orders to subordinates. It covers every aspect of military operations and administration and exists only within national services. It follows that no alliance or coalition commander has full command over the forces that are assigned to him. Nations will determine the criteria, methods, and extent of any delegation to a commander from a different nation. In making this determination, factors considered are likely to include the political objectives, the military mission, the size of the proposed force, the relative force capabilities, the advantages, risks and costs involved, the anticipated duration, and the MMF concept for rules of engagement. 2. Operational Command (OPCOM). OPCOM gives the commander authority to assign missions, to deploy or reassign forces or tasks to subordinate commanders, and to retain or delegate operational and/or tactical control as necessary. OPCOM does not include responsibility for administration or logistics; these responsibilities must be clearly specified in a multinational operation. OPCOM may be used to denote the forces assigned to a commander. A commander assigned OPCOM in a MMOP (Maritime Multinational Operations) may not reassign or delegate that authority without specific approval. While OPCOM allows the commander to separately employ components of assigned units, it cannot be used to disrupt the basic organization of a force to the extent that it cannot readily be given a new task or be redeployed. If commanders are assigned forces for a continuing mission in which they need freedom for employment with little or no constraint, they should be given OPCOM. coalition: a temporary alliance disrupt: to disturb or interrupt directive: a general order issued by an authority 3. Operational Control (OPCON). OPCON is subordinate to OP- COM. It is the authority delegated to a commander to direct the day-to-day operations of forces in the accomplishment of assigned missions. These missions are usually limited by function, time, or location; deploy units concerned; and retain or assign tactical command (TACOM) and/or tactical control (TACON) of those units. OPCON does not include authority to separately employ components of the units concerned, or to employ a unit, or any part of it, for tasks other than the assigned task, or to disrupt its basic organization so that it cannot readily be given a new task or be redeployed. OPCON does not include responsibility for administration or logistics; that responsibility would have to be clearly specified in a multinational operation. Units are placed under OPCON so that commanders may benefit from the immediate employment of these units in their support, without further reference to a senior authority. The commander given OPCON of a unit may not exceed the limits of its use as laid down in the directive without reference to the authority issuing the directive. If the commander has a limited mission or task, or if forces are assigned with limitations on their activities, commanders should be given OPCON.

4 execution: carrying out eligible: qualified Change of Operational Control (CHOP). CHOP is the date and time (GMT) at which the responsibility for OPCON of a force or unit passes from one OPCON authority to another. The manner of execution of CHOP should be explicit in the operation order; this may be done in terms of time, position, or boundary crossing. 4. Tactical Command (TACOM). TACOM is the authority delegated to a commander to assign tasks to forces under his command for the accomplishment of the mission assigned by higher authority. This term is used primarily in maritime operations. It is narrower in scope than operational command but includes the authority to delegate or retain tactical control. The senior officer present eligible to assume command of a Task Force Organization is called the Officer in Tactical Command (OTC). 5. Tactical Control (TACON). TACON is the detailed and, usually, local direction and control of movements or maneuvers necessary to accomplish missions or tasks assigned. Tactical control is usually assigned by OPCOM, OPCON, or TACOM to a subordinate commander for a limited period of time to conduct a specific mission or task. A commander having tactical control of the unit is responsible for the method and the orders used to exercise it. Other Terms. Several other terms are frequently used by individual nations and services and will occasionally be used in multinational operations. These are: 1. Assign. a. To place units or personnel in an organization where such placement is relatively permanent, and/or where this organization controls and administers the units or personnel for their primary function, or greater portion of their functions. b. To detail individuals to specific duties or functions where such duties or functions are primary and/or relatively permanent. 2. Attach. a. To place units or personnel in an organization where such placement is relatively temporary. Subject to limitations imposed in the attachment order, the commander of the formation, unit, or organization receiving the attachment will exercise the same degree of command and control as he does over the units and persons organic to his command. However, the responsibility for transfer and promotion of personnel will normally be retained by the parent formation, unit, or organization. b. To detail individuals to specific functions where such functions are secondary or relatively temporary (i.e., attach for quarters and rations, attach for flying duty).

5 3. Support. The action of a force, or portion thereof, which aids, protects, complements, or sustains any other force. If a commander can achieve his mission without a higher level of command authority (i.e., OPCOM/OPCON), forces may be directed simply to act in support. The degree, manner, and duration of that support should be specified by the authority ordering the support: a. Direct Support. The support provided by a unit or formation not attached or under command of the supported unit or formation, but required to give priority to the support required by that unit or formation. A unit assigned in direct support will operate under the tactical control of the supported commander. b. Associated Support. Assistance provided by a force or unit to another force or unit that is under independent control (neither of which is subordinate to the other). The designated unit remains under the tactical control of the assigning authority who coordinates its tasks and movements. Administration and Logistics. The delegation of authority in terms of OPCOM and OPCON does not include a delegation or change of administrative or logistic responsibilities. Any such delegation or change must be specifically ordered, either separately or together with the delegation of command authority. On occasion, changes to the degree of command authority may require changes to administrative or logistic responsibilities, and circumstances will arise in which administrative or logistic considerations place constraints on operations. Therefore, a delegating authority must always consider the possible administrative and logistic implications of any intended operational arrangement. Notes: 1. Refer to EXTAC 1000 for definitions and additional information. 2. As a point of departure, these NATO-derived terms have already been endorsed by a diverse multinational forum and may prove more palatable than strict national doctrine when establishing agreement among coalition partners. Source: Multinational Maritime Operations, Department of the US Navy (September 1996). [www]