Programme Paper: ISP PP 2010/01

ALLIED RAPID REACTION CORPS (ARRC), COMMANDERS INITIATIVE

GROUP (CIG)

Operationalizing the
Comprehensive
Approach

Professor Julian Lindley-French

Head, Commander’s Initiative Group, Allied Rapid Reaction Corps (ARRC) and Eisenhower
Professor of Defence Strategy, Netherlands Defence Academy

Professor Paul Cornish

Head, International Security Programme and Carrington Professor of International Security,
Chatham House

Dr Andrew Rathmell
Principal, Libra Advisory Group

March 2010

The views expressed in this document are the sole responsibility of the author(s) and do not
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take institutional positions on policy issues. This document is issued on the understanding that if
any extract is used, the author(s)/ speaker(s) and Chatham House should be credited,
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delivery.
ISP PP: Operationalizing the Comprehensive Approach

EXECUTIVE SUMMARY

Background

The Allied Rapid Reaction Corps (ARRC) has established Project Tardis to
help pave the way for NATO to think more effectively about how best to build
credible and functioning Comprehensive Approach (CA) capabilities via its
theatre-level staff. Attention is focused specifically on flexible command and
control structures and on civilian-military co-operation in hybrid conflict. Of
particular importance is the opportunity such free-thinking operational
experimentation affords for genuine multinationality within the Comprehensive
Approach, thus underpinning the legitimacy and influence upon which such
operations rest and, critically, the unity of purpose and effort that is the sine
qua non of the Comprehensive Approach.

Objective
Given the drafting of the new Strategic Concept and the critical phase into
which operations in Afghanistan have entered, ARRC and other headquarters
should be encouraged to further experiment and to share their experiences to
enhance the delivery of the Comprehensive Approach.

Definition
The Comprehensive Approach is the cross-governmental generation and
application of security, governance and development services, expertise,
structures and resources over time and distance in partnership with host
nations, host regions, allied and partner governments and partner institutions,
both governmental and non-governmental.

Core Message

If the Comprehensive Approach is to work as it should, the concepts and

doctrine underpinning such a cross-Alliance effort must be matched by
efficient generation and use of required resources, political will and strategic
patience. The Alliance is at a tipping point. If the Strategic Concept does not
take account of what is required for operational effectiveness in hybrid
conflict, then while the Alliance might persist as a political organization its
operational and deterrent credibility will be seriously eroded.

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Command Arrangements
Operationalization of the Comprehensive Approach: The effective
operationalization of the Comprehensive Approach is central to the future
utility and credibility of NATO. Equally, an effective Alliance will be vital to the
International Community’s ability to conduct effective Comprehensive
Approach operations in future hybrid conflicts. However, the experience of
the ARRC suggests that a much more systematic approach at NATO
command level is needed to generate and sustain all of the required elements
and partnerships.

A Comprehensive Approach Command: The centre of gravity of the

Comprehensive Approach should be the three star theatre command with
standardised High Readiness Forces (Land) (HRF (L)) fighting the tactical
1
battle. Ideally, a bespoke Comprehensive Approach Command under
SACEUR would ensure that civil-military integration takes place from top to
bottom and from the strategic to tactical with the role of strategic
headquarters first to ensure that campaign planning is sound but above all to
ensure that organisation and delivery to theatre of forces and resources.

Holistic View of Operations: Comprehensive Approach operations should be

based on a holistic view of the mission’s strategic objectives and should
include all partners in the assessment and planning processes. Influence is
the medium through which the Comprehensive Approach is most clearly
manifested and the central organising concept for hybrid operations. All
operational elements (campaign planning, targeting policy and strategic
communications) should be part of a holistic influence effort.

Command and Control in Hybrid Operations: NATO strategic commands must

apply a model of effective and flexible command and control, able to embrace
and reach out to key civilian partners (member and partner nations,
international organisations (IOs) and non-governmental organisations
(NGOs)), supported by HRFs that are able to operate at tactical level as a
rotational planning and command nexus for sustained operations.

Level of Ambition: The Comprehensive Approach must be seen from the

outset as a whole of government/s issue with structures built accordingly at

1
The seven HRF (L) HQs of NATO's Force Structure include, in addition to the ARRC, the
Eurocorps, the 1st German-Netherlands Corps, the NATO Rapid Deployment Corps-Italy, the
NATO Rapid Deployment Corps-Spain, the NATO Rapid Deployment Corps-Turkey, and the
Rapid Reaction Corps-France.

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Alliance-level with the sustained backing of nations to support the theatre-

level effort. Equally, the Alliance must avoid over-bureaucratising the process.

Harmonize Headquarter Practices and SOPs: SHAPE should take the lead in
determining how HRF (L) headquarters’ practices and Standard Operating
Procedures (SOP) should be harmonized on the basis of the experience,
experiments and lessons of the HRFs, notably including the ARRC and the
experience of ISAF/IJC operations.

Consequences of Failure: Failure will mean that the Comprehensive

Approach will only ever ‘work’ if one member (the US) leads which, whilst
attractive in the short-term, will tend to undermine the legitimacy and
multinational ethos that is vital for mission success.

Non-Military Aspects
Building Systematic Relationships: The establishment of more systematic
relations between partner institutions and states engaged on and in hybrid
conflict would promote a better understanding of realisable aspirations and
thus enhance campaign planning. Regular meetings and exercises would
enhance a better understanding of the opportunities for co-operation (and
constraints) and lead to a better understanding of achievable goals within
likely agreed timeframes. Therefore, building on the Mid-Term Exercise
Programme a more systematic set of exercises is needed with a detailed
audit process with the results shared with all partner institutions and partner
states.

A Broad Understanding of Civilian Capacity and Capability Development:

NATO lacks a capability beyond short term infrastructure development that is
itself limited to the direct support of deployable forces. NATO therefore
requires a broader understanding of capacity and capability development.
Such a commitment must go together with assured access to resources
(coupled with a determination to become involved in these sectors) which are,
usually, on a direct path to the strategic objectives of a mission.

Subject Matter Experts: NATO Subject Matter Experts (SME) are needed
both at the centre and within operational headquarters. NATO needs to build
civilian capability within its structures with seconded/civilian experts at
SHAPE, Joint Force (JF) and High-Readiness Force (HRF) levels. This will
require systematic access at short-notice to relevant expertise.

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Deployable Civilian Expertise: Civilian expertise will need to be deployed

forward to support headquarters such as the ARRC. A more systematic
approach to training and education is needed with a particular focus on how
to operate in a multinational military organisation; understand the
contemporary operating environment; build networks with civilian
organisations, and understand different planning methodologies.

Civilian Planning Element: HRF HQs must be able to effectively ‘plug and
play’ with a cadre of expert civilians built around a dedicated Civilian Planning
Element (CPE) itself embedded in civil-military planning and the civil support
elements of a headquarters. The CPE must be able to pass on knowledge
and know-how to successors to ensure campaign momentum.

Ensuring Continuity at the Politico-Military (pol-mil) Level: Continuity at the

pol-mil level is vital. NATO is best placed to develop mechanisms such as a
Policy Steering/Action Group and a Civilian Planning Element. However, a
PSG/PAG will by its nature be theatre specific, while CPEs should be
developed for all NATO headquarters and fully integrated into the best
practice of SHAPE and Brunssum. This will ensure that all partners critical to
mission success are brought into the process (physically as well as
figuratively) and thus embrace both concept and design early in the
operational cycle.

The Role of Strategic Communications: Strategic communications explain

why actions are necessary and the benefit they will bring. Broad consultation
over policy with key civilian partners, a wider understanding of what
comprises a Stratcom target (both friends and foes), and a Stratcom strategy
that places all actions within a broad context would promote enhanced
synchronisation and de-confliction of efforts by partners.

Civilian Advisory Cluster: An effective Command Group would ideally include

a Stratcom Advisor who would be a civilian from outside the formal structure
in support of the Public Affairs Officer (PAO). S/he would also work in
conjunction with the Political Advisor and Cultural Advisor and with a
Commander’s Initiative Group (CIG) as part of a civilian cluster designed to
test all planning assumptions, as well as reach out and back to external
expertise and influence.

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PROJECT TARDIS

This report lays out both the vision and the challenges NATO should address
if it is to establish itself as the best practice leader in a vitally important
strategic and operational domain. In a protracted phase of operational
experimentation, HQ ARRC has over the past eighteen months attempted to
improve the utility of the HRF (L) headquarters by experimenting with better
working practices so as to operate more effectively in the contemporary
environment.

HQ ARRC has developed Project TARDIS over the course of the past twelve
months to overcome some of the perceived shortcomings of the land
components of NATO High-Readiness Forces (Land) (HRF (L)) in the delivery
and the operationalization of the Comprehensive Approach. The goal is to
achieve unity of purpose in hybrid operations. The lessons learned thus far
from Project TARDIS have been infused with experience from operations in
Afghanistan and other theatres driven by the need to establish effective Allied
mechanisms to promote better cross-theatre co-operation.

Thus far experience of the international civil-military effort in Afghanistan has

emphasised three weaknesses in the Allied effort: a) the creation of national
stovepipes that undermine the transnational effort and thus weaken cross-
theatre co-operation; b) an inability to measure progress (or otherwise) in the
key areas of governance, such as rule of law and development; and c) an
inability to speak with one voice to actors in region. However, if the goals
established by General McChrystal for the International Security Assistance
Force (ISAF) are to be achieved then unity of effort will necessarily amount to
far more than the merger of the military counter-terror and counter-insurgency
efforts. The challenge will be to reach out effectively to include key civilian
partners at an early stage in campaign planning. High-level political fusion is
also critical to both unity of purpose and effort and ideally would be achieved
through the driving influence of a senior political figure able to act as a
consistent interface between the political level and all partners to an
operation.

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EXERCISE ARRCADE FUSION 09

Exercise ARRCADE FUSION 09 (Ex AF09) took place in November 2009. Ex

AF09 produced a number of lessons and observations pertinent to the
ongoing work of the NATO Strategic Concept Expert Group with a specific
focus on operationalizing the Comprehensive Approach. This report is the
responsibility of the main author Professor Julian Lindley-French, Head of the
ARRC Commander’s Initiative Group (CIG) with the support of other CIG
members, Professor Paul Cornish of Chatham House, Dr Andrew Rathmell of
the Libra Advisory Group and Ms Leslie Simm. The intent of this report is to
support the work of the Expert Group in the design of the strategic concept.

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KEY LESSONS FROM PROJECT TARDIS AND EXERCISE ARRCADE FUSION

2009 (AF09).

• Effective Delivery: For the Comprehensive Approach to be

effective it is critical that campaign planning and command
decisions take place at the right level. To that end, the ISAF Joint
Command (IJC) is vital to ensure integrated civil-military support
to subordinate commands fighting the tactical battle Civil-military
integration is essential, from top to bottom and strategic to
tactical, with a Policy Steering or Action Group (PSG or PAG) led
by an international political figure speaking with the authority of
principal international organisations (UN, regional organisations,
EU) that could properly reach out to host nations and other key
partners in the mission. The role of strategic headquarters once
the campaign plan is agreed is thus to support and enable the
theatre commands as part of a partnership between the NATO
Command Structure and the High Readiness Force structure.

• Operationalize the Comprehensive Approach: An integrated

Civilian Planning Element (CPE), working within the headquarters
provided trusted collaboration and the exploration and
implementation of ideas previously beyond the mandate of a
purely military HQ and demonstrated the utility of embedded
civilians. Equally, the need for those civilians to be fully prepared
and trained prior to the exercise was also evident. Ideally, such
an exercise (possibly Exercise ARRCADE FUSION 13) would be
civilian-led with a strong NATO civilian-led inter-agency approach
supported by member nations. Such an exercise format would
help to inform the effective operationalization of the
Comprehensive Approach, with headquarters fostering new
relationships between NATO in Brussels, SHAPE in Mons and
member and partner/participating states.

• Develop Effective Cross-Function Partnerships: Partnering and

collaboration across functional areas and domains is essential
and should, where appropriate be replicated across all levels of
the NATO structure, particularly the High-Readiness Forces
(HRFs). Such partnership was simulated (and achieved) at the
corps level on Ex AF09 through the incorporation of the Civilian

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Planning Element which included individuals provided by the UK

Foreign and Commonwealth Office (FCO), the UK’s inter-
departmental Stabilisation Unit (SU) and the Department for
International Development (DfID), the Netherlands Ministry of
Foreign Affairs and the US State Department. Importantly,
collaborative planning began seven months prior to the exercise.

• Provide Time to Work up Partnerships: Ex AF09 demonstrated

the critical need for the early working up of such partnerships and
the extent to which success was dependent on trust. For
example, the willingness of British departments of state to deploy
a Civilian Planning Element to current operations in Afghanistan
is compromised by the inherent difficulties in persuading different
departments to work together. There are, furthermore, dangers
and risks inherent in a complex contemporary operation even
within the framework of a single nation. The challenges posed by
the Comprehensive Approach are magnified by the construct of
NATO’s institutions, the lack of any bespoke, dedicated
architecture, particularly at higher levels of the command chain,
by the need for consensus and by the lack of any dedicated
shared doctrine (ways of doing business) and understanding of
best practice across the Alliance. Such partnerships take time to
construct and cement.

• Unity of Purpose: The Comprehensive Approach operationalizes

unity of purpose through unity of effort. Campaign planning
translates medium to long-term stabilisation objectives via a
range of critical partnerships between civilian and military actors
into a shared road-map. Unfortunately, examples abound of
NATO military headquarters attempting to co-ordinate unity of
effort in an environment where unity of purpose is not much in
evidence. In the first instance, co-ordinating the efforts of NATO,
the United Nations (UN), and regional organisations such as the
African Union (AU), European Union (EU) and the Organisation
for Security and Co-operation in Europe (OSCE) in the
preliminary stages of a deployment are vital if unity of purpose is
to be meaningful. Particularly important for unity of purpose is
early agreement over the political legitimacy upon which any such
security, stability and development operation must rest. On Ex
AF09 the focus was on the politico-security (of which the politico-

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military was a part) where unity of purpose and effort was

promoted through the early establishment of an in-country Policy
Steering Group (PSG) co-chaired by the UN International Co-
ordinator and the President of the Host Nation with membership
of the group extended to key actors and institutions in country.

• Effective Strategic Communications: Strategic Communications

connects all activities and actors across all theatres with host
nations and home nations. If unity of purpose is to be achieved
NATO must have a unified message, ideally aligned to that of the
international community, communicable to ally and adversary
alike and offering a cogent story to publics at home and in-
theatre. A coherent strategy to deliver such a narrative and to
maintain consistency is also vital. In certain respects a
compelling narrative is the foundation upon which the
Comprehensive Approach is established and a fundamental
element in effective campaign planning. Clear political leadership
and buy-in from the civilian stakeholders early in the planning is
essential to avoid a gap between political and military activity.
This is particularly important for maintaining campaign
momentum because inevitably different military and civilian
actors, IOs and NGOs require different narratives and have
different decision-making cycles. Effective Stratcom thus creates
an information domain within which all actors can operate in
partnership. To that end, HQ ARRC put influence at the heart of
its activity physically and conceptually in Ex AF09. HQ ARRC’s
goal was to match narratives with actions with the specific
objective of adopting an approach that was the least kinetic
possible consistent with problem resolution and the need for the
headquarters to assure the fighting power of the force.

• Capacity vs. Time: Mechanisms must be in place early to

systematically provide resources for collaboration between the
major actors engaged in theatre, and to influence and exploit it.
That is not the case today. The military are usually possessed of
the capacity for spontaneous planning and implementation, whilst
the civilian actors that comprise the international community (e.g.
member-nations, UN and EU) tend to require time in order to
operate effectively and to ensure the systematic application of

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funding of all-important political reconciliation, reconstruction and

development.

• Civil Support: ARRC has long recognised its own shortcomings

in facilitating civil support and fully recognises its limited role as
an enabler. Nevertheless, ARRC seems to be well in advance of
other NATO HRFs with regard to these aspects of operations. To
that end, the Mid-Term Exercise Programme could be developed
further both to achieve a standard approach across HRFs and to
integrate a wider pool of civilian expertise through NRF command
post exercises. Rarely, and normally only if the security situation
prevents civil involvement, will ARRC (or military forces in
general) involve themselves in reconstruction and development
projects and humanitarian assistance. In order to better inform
the military activities of the headquarters, ARRC established a
Civil Support branch with military (reservist) subject matter
experts (SMEs) and contracted civilian SMEs to advise on the
appropriate level and nature of military involvement. The branch
covered several areas critical to gaining the rapid support of host
publics, such as essential Services (water, power, sewage etc);
Governance and Rule of Law; and Economic Development. This
external expertise also allowed a better understanding of the
funding dynamics within theatre and where to best influence
donors and project leaders.

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THE COMPREHENSIVE APPROACH – GETTING THE BASICS RIGHT

The 2006 failed review of the NATO Command Structure (NCS) resulted in a
political compromise that spawned the dysfunctional Deployable Joint Staff
Element (DJSE) which undermined the Comprehensive Approach. Moreover,
it was decided not to resource the NATO Response Force (NRF), most
critically the Land Force elements. HQ ARRC prepared for and stood up as
NRF 13 from January to June 2009 (preparation period) and June to
December 2009 (stand by period). As such the ARRC gained some relevant
insights into the NRF structure and process, as well as operating with the
DJSE.

• Deployable Joint Staff Element: ARRC exercised on three

occasions with the DJSE from Allied Land Command Heidelberg.
The first exercise saw the DJSE ‘integrated’ into HQ ARRC to
augment the ARRC role as Headquarters Combined Joint Force
Land Component Command (HQ CJFLCC). The two other
exercises saw the DJSE deployed ‘in country’ along with the Joint
Force Commander as a separate entity to the land component
command with the DJSE acting as a discrete command node
separated from the static Joint Headquarters. It is ARRC’s
assessment (and it is a view widely accepted within the HRF (L)
Command cadre) that the DJSE concept in its primary role (i.e.
as a separate headquarters) is flawed, although this is contested
by both Allied Command Operations (ACO) and Allied Command
Transformation (ACT). DJSE complicates and adds an
unnecessary layer to the command structures and confuses
responsibilities within theatre. DJSE also relies heavily on a
commander supported by a staff that are unfamiliar with each
other and who by definition are neither Joint in construct nor well
trained whilst physically splitting the commander from his worked-
up planning staff, possibly by some thousands of miles. In other
words, such an approach is the very antithesis of sound
campaign planning upon which the Comprehensive Approach
must be built because it creates a core military planning and
command hub that is at best ad hoc.

• Weak Communications and Support: These failings are

exacerbated by bandwidth limitations which prevent the two
halves of what is a separated headquarters from adequate and

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effective communication. In addition to the lack of bandwidth,

NATO does not, in any case, have the basic deployable
infrastructure (IT equipment, temporary accommodation, catering
support etc) to support the concept. An HRF (L) Land Component
Command (LCC HQ) deployed in theatre is far better resourced
to undertake tasks currently assigned to the DJSE, especially in
the area of Key Leader Engagement (KLE). Indeed, there is no
reason why the LCC HQ could not host the Joint Commander
when he chooses to visit the theatre.

• The NATO Response Force: The NATO Response Force has

undergone a review over the past twelve months resulting in the
decision to extend the stand by period from six to twelve months.
This is a sensible initiative given the time and resources required
to train for the commitment. However, for ARRC’s NRF 13
commitment the land component command Combined Joint
Statement of Requirement (CJSOR) was only filled to 27%, which
would have resulted in a period of integration being required
before the force was viable. This additional time would have
prevented the Land Component NRF from achieving its
mandated 5 days notice to move by some considerable period –
perhaps a delay of up to 14 days. In brief there was/is no force at
readiness.

• HRF (L) Employment on ISAF: DSACEUR’s early aspirations

envisaged HRF (L)s providing a trained and cohesive nucleus to
the newly formed ISAF Joint Command Headquarters (IJC HQ) in
Afghanistan, as well as a number of functional area leaders which
would have capitalised on their collective training and
understanding, and in turn would have provided for gainful
employment of high readiness staffs conducting annual
integrated training. The reality is somewhat different with the
Flags to Posts (F2P) process ensuring that HRF (L) staff will only
ever be used in a piecemeal fashion as individual augmenters.
Once again this undermines the possibility of a systematic
approach to building NATO headquarters able to act as hubs for
the Comprehensive Approach in a sustained and systematic
manner. This method of employment is likely to threaten the
continued support and resourcing of three-star corps
headquarters by their framework nations if SHAPE will not/cannot

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employ them in a coherent manner. NATO should in future

ensure that employment of HRF (L)s is not only in keeping with
their design and levels of training, but that effective command
and control is reinforced systematically by the civilian knowledge
and expertise communities vital to mission success.

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THE WAY FORWARD?

If the operational experimentation undertaken by the ARRC is to be
capitalized upon then far more work needs to be done to promote truly
credible and effective combined, joint and comprehensive (CJC) (civil-military)
command and control. Exercise ARRCADE FUSION 13 will take place some
three years hence and thus both the opportunity and time exist to use this
vehicle for further operational experimentation. Specifically, it should take
place within the framework of the NRF (or rather a new NRF concept) to
identify what is really needed in command and control terms.

There are several adjustments to modus operandi that would need to be

made. The DJSE is not designed to work with a LCC, but rather with a Joint
Force Command (JFC), such as Brunssum or Naples. At present, DJSEs are
predominantly manned by army staff, although the objective is to render them
progressively more joint. Thus what would be needed as a minimum (and ad
interim) is a LCC with a credible level of joint expertise to effectively manage
maritime and air assets. Even if key actions take place on the ground,
maritime and air components are key enablers.

In any case, DJSEs were always to an extent a ‘fix’. Ideally, integrated ‘fly-
forward’ packages would be drawn from the staffs of Brunssum and Naples.
The implication therefore is that either Heidelberg or Madrid would be surplus
to requirement. However, if the nations continue to block structural solutions
for political reasons the need for some form of composite solution will persist
and with it the very tendency to resort to quick fixes that makes NATO on
occasions appear far weaker and more inefficient than is actually the case.

As Omar Bradley once famously said “Amateurs study strategy, professionals

study logistics”. Logistics are indeed critical for the kind of operations
envisaged. The ARRC offers a Joint Logistics Support Group (JLSG) which
could act as a model for the reform of other HRF(L)s so that Rear Support
Commands are standard, thus enhancing the ability of the Alliance to rotate
headquarters without losing either institutional knowledge or operational
momentum. However, whilst the ARRC itself can provide a number of
services to meet the LCC's requirement for entry and sustainment into
theatre, neither the ARRC nor any other HRF (L) offers the joint expertise to
effectively manage theatre level maritime and air theatre logistic requirements
and resources. Indeed, given the constraints on Brunssum, Naples and LCCs
this seems to be structural failing which is becoming steadily more
pronounced the more that one nation (the US) fills in the gaps. Hopefully, the
IJC will offer the way forward but it must be a) genuinely multinational in

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ethos, structure and practice; and b) not seek to command all elements as it
will simultaneously need to look up, out and down.

Equally, the ARRC’s experimentation raises another set of questions. For

example, is it right that one member nation (other than the US) finances a
commitment to provide a theatre level headquarters with all that entails over a
period of time? Can a headquarters that rotates every nine-to-twelve months
be effective at managing a €1bn fuel management programme for ISAF, or
the €200m infrastructure programme that is spent annually in Afghanistan if
there is in effect very little chance for a seamless handover of function from
headquarters to headquarters? The inference is that to be truly effective in
stabilization and reconstruction the Alliance needs to examine where best
campaigns, tasks and personnel should be generated, organized and
commanded. In other words to achieve maximum effect in a large complex
space over time and distance with limited resources would likely take truly
radical reform of the NATO command structure, not to mention a new set of
relationships with key partners vital to mission success. To that end, SHAPE
should take the lead in determining how HRF (L) headquarter practices and
Standard Operating Procedures (SOP) should be harmonized on the basis of
the experience, experiments and lessons of the ARRC.

Given that context, it is a particular concern that very few of the other HRFs
can emulate the ARRC, and surely for this reason alone the work the ARRC
is doing should be used to help (not exclusively) further develop and
transform the other HRFs. In the contemporary international security
environment the Alliance requires a smaller but nevertheless effective cluster
of headquarters that can rotate seamlessly without any loss of institutional
memory or operational momentum. These headquarters should all conform to
a common set of command and control standards, enabling a plug-and-play
structure easily augmentable as and when required.

To that end, the NATO Peacetime Establishment (PE) Review must be

urgently concluded to make NATO fit for purpose (even given the relatively
limited scope of operations undertaken by the Alliance particularly with regard
to Crisis Response Operations (CROs)). Specifically, a more agile C2
construct is needed with clearly defined roles for Naples, Brunssum (and
Lisbon) so they demonstrably add value and are seen to do so. Ideally
Brunssum would be the supporting command for HQ ISAF, with responsibility
for pre-deployment training, deployment of forces, long-term resource
planning etc with HQ ISAF reporting directly to SHAPE. Without such reform
the tendency of nations to retreat back into national stovepipes during

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deployments will persist and all the effort invested in both a trans-national
Comprehensive Approach (worthy of the name) and multinational formations
designed to generate cost-effective, strategic, theatre and tactical effect will
wither.

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CONCLUSION

The Strategic Concept must make the operationalization of the

Comprehensive Approach central to the future development of the Alliance
and its modernisation. Whilst the ARRC is to be commended for its attempts
to create a multinational, multi-disciplinary hub such transformation will need
to go significantly further if a truly cross-NATO multinational culture of
operational effectiveness is to be created. The simple fact is that Europeans
(and Canadians) need to close the gap between a world that increasingly
buffets them, the implicit and explicit security task-list that emerges from such
events and the limited forces and resources available to European (and
Canadian) leaders. Here, an opportunity could exist through closer NATO-EU
relations because the method implicit in the Comprehensive Approach is
central to the emerging European strategic culture (for all its many failings). If
the basic geometry of the challenge is not addressed sooner or later the
armed forces of a NATO member or a NATO intervention will fail and possibly
catastrophically. It is imperative, therefore, that these issues move beyond
the merely military-technical.

NATO is of course the sum of nations’ ambitions. At present there is a

growing gap between aspirations/agreed concepts, and the willingness of
nations to meet commitments. There is a pressing need for nations to re-
discover the strategic patience that hybrid operations invariably require.
Given that the public finances of most NATO nations are under severe
pressure investment in quality personnel would offer a cost-effective
opportunity to enhance Alliance effect. If the Alliance could embrace such a
level of ambition then the transformational would become the credibly
operational and the Comprehensive Approach would be realised in full.

In 2010 the Alliance faces a tipping point. If the Strategic Concept is not
written with at least an understanding of the fundamentals examined in this
report then the Alliance might persist as a political organization but the
effective and credible fighting power upon which it is and must be based
could well decline to the point where no operational or deterrent role is
credible.

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ABOUT THE AUTHORS

Professor Julian Lindley-French is an Associate Fellow of Chatham House.

He is the Eisenhower Professor of Defence Strategy at the Netherlands
Defence Academy and Special Professor of Strategic Studies at Leiden
University.

Dr Paul Cornish is Carrington Chair and Head of the International Security

Programme, Chatham House.

Dr Andrew Rathmell is a director of Libra Advisory Group. He is a public

policy practitioner and scholar who has led government strategy work for the
UK and US governments and the European Commission. His most recent
position was as deputy director of the Foreign & Commonwealth Office’s
Strategy Unit. Prior to joining the FCO, Dr Rathmell served as chief planner
for the Coalition Provisional Authority in Iraq and was previously director of a
UK-funded programme to rebuild the Iraqi interior ministry. He has served as
a specialist advisor to the UK House of Commons Defence Select Committee,
and held fellowships from NATO and various UK research councils.

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