I just received a copy of General Sir Richard Dannatt’s speech to the RUSI Land Warfare Conference, 12 June 2008. It strikes me as a model of clear thinking which very much is in accordance with my own as expressed here in Redesigning Land Forces for Wars Amongst the People (with the obvious caveat that Dannatt rejects the term ‘war amongst the people’ , wrongly in my view and for the wrong reason). There’s a lot to like here. Some excerpts:
At the risk of going against the flow of public opinion, I do not agree with Rupert Smith when he says: ‘A paradigm shift in war has undoubtedly occurred….the old paradigm was of interstate industrial war. The new one is the paradigm of war amongst the people.’ In accepting what Rupert said we run the risk of a binary response – and life is not so straightforward.
I also don’t think that there has been a paradigm shift in war. More to the point, I don’t think Smith really does either. That’s the worst single sentence in the book. I wish his editor had warned him off talk of ‘paradigm shift’. It’s the biggest red flag you can imagine. In any case, that’s not what he shows in the rest of the book. Had he written there has been a ‘large shift on a continuum of war from armies with comparable forces doing battle on a field to strategic confrontation between a range of combatants, not all of which are armies, not all of which are armies, and using different types of weapons, often improvised. I call that war amongst the people’, then there would be no dispute between the generals. Perhaps they read this blog? (Hey, its possible!) If so sound off in comments.
Continuing on, however:
… as we withdrew from Empire, I think there were two critical factors that still impact on us today. The first is that the balance of resources and priority in thinking shifted dramatically to the Cold War and to defence in a possible war of national survival. Insurgencies still occurred as we withdrew from Empire, but as the Army became smaller, so these operations (less Northern Ireland) took on a second priority as far as national defence priorities were concerned. Our policy was to disengage and return from East of Suez. So even our residual ‘Out of Area’ capabilities needed to be dual-roled. Additionally, in a desire not to be considered to be still colonial, I sense that we lost the mindset and skills across Government that our fathers and grandfathers instinctively understood and there was perhaps – and still is in some quarters – a reluctance to do anything that appeared to be colonial in nature.
Indeed. It is one thing to refuse to get involved in the manner of affairs and governance of other countries because don’t want to impose your ideas about such things upon others, or don’t care how malgoverned and mistreated some people might be. That’s logical enough. It is another thing to meddle in the manner of affairs and governance of other countries because you care (or profess to care) about how malgoverned and mistreated some people but not to be realistic about the requirements of governing such places out of shyness of one’s colonial past. That’s logically inconsistent.
We can no longer be prescriptive about taking part in either Major Combat Operations or Stabilisation Operations, the boundary between them has become increasingly blurred – the antithesis of the beloved binary response. I cannot envisage a conflict where there will be no role for stabilisation operations, but equally stabilisation is highly likely to involve combat as it does today.
Yes, as I have said before, its not either major combat operations or stabilization operations its both, possibly simultaneously in the same place. The trouble is finding the optimum configuration of forces to cover the whole spectrum.
Look how foolish those who claimed the end of history in 1991 look now.
A small point but it always bugs me. What Fukuyama wrote was this:
What we may be witnessing is not just the end of the Cold War, or the passing of a particular period of postwar history, but the end of history as such: that is, the end point of mankind’s ideological evolution and the universalization of Western liberal democracy as the final form of human government. This is not to say that there will no longer be events to fill the pages of Foreign Affair’s yearly summaries of international relations, for the victory of liberalism has occurred primarily in the realm of ideas or consciousness and is as yet incomplete in the real or material world. But there are powerful reasons for believing that it is the ideal that will govern the material world in the long run.
Call me crazy but I don’t see this as foolish. Premature, maybe. He doesn’t talk enough about the challenge of Islam, surely; though what he writes about that seems fair:
In the contemporary world only Islam has offered a theocratic state as a political alternative to both liberalism and communism. But the doctrine has little appeal for non-Muslims, and it is hard to believe that the movement will take on any universal significance.
Anyway, I digress. Back to Dannatt:
So if that is the context of the debate, where do I, and my fellow Generals, want the Army to go over the next ten years? Critically, the start point of this journey is firmly rooted in the present. We will not be setting our aspirations for 2018 in a far flung technological age or in an ill defined strategic context. In a break from traditional defence planning, we would like to see planning go from today as the start point and work forward. This may seem slightly at odds with current practice, but we must be flexible enough to take account of shifting current operations and to veer and haul our capabilities and resources accordingly. We must get away from blue skies thinking and from programmes that take a generation to introduce – current pressures do not give us that luxury.
If I interpret this correctly he is saying ‘let’s not lose the war we’re already fighting by spending huge amounts of time and money preparing for a more conventional war which would be more to the liking of miltechno-fetishists and defence industry.’ If so, I approve.
We must have an increasing capacity to endure, which implies not only greater mass of people, but enough depth in joint enablers to allow wider concurrency together with greater endurance. In order to do this, I need a structure that is capable of the wide range of tasks in great numbers, which means that we will not be going down the path of a two tier specialised Army. We might need 30,000 for an MCO operation, but equally Stabilisation might require even more in certain stages. And I think it is also important to consider the inescapable fact that some Stabilisation Operations could be greatly shortened if large numbers are deployed. I have taken a lesson of the past 5 years of conflict that if you have an economy of force operation it will take far longer to reach your endstate – it is therefore a false economy.
I think this is a vital point. We can do MCO with relatively small forces. But translating military operational achievements into desirable political outcomes requires Stabilization Operations which, not incidentally, are manpower intensive. Ergo, Stabilization Operations must be the job of the ‘big Army’. I love the part about false economy of economy of force which I must remember to reuse.
In support of the Defence Strategic Guidance 08 work, I have directed an Army study to look at the feasibility of forming permanent cadres of stabilisation specialists. These small units would specialise in the training and mentoring of indigenous forces – the type of tasks conducted by OMLTs in Afghanistan or MiTTs in Iraq. But I see these organisations as being far more. My vision is that they would form the spine of our enduring cultural education and understanding. I can envisage a multi-disciplined and inter-agency organisation that would be capable of both fighting alongside local forces, and delivering reconstruction and development tasks in areas where the civil agencies cannot operate. I believe we should develop a career path that would see an officer spending a tour with indigenous forces, followed perhaps by an attachment to DFiD overseas, or a local council at home or a police force in Africa or elsewhere. Perhaps, this is where we start to embed our deep language and cultural training, not just for our current areas of operation, but potential future conflict zones. This is the stuff of our grandfathers and great uncles but, as I have argued, we are in a continuum, not in a new paradigm – so these skills are still very relevant.
I think this is very sensible on a number of levels. The part I think particularly useful and sage is the idea of a career path in which officers would serve on attachment in a ‘local council at home‘. That is because, for me, one of the biggest things which needs to be understood is the interaction between images and ideas about what happens on operations abroad and what happens domestically in places like Bradford and Dewsbury. When I see on the news the British Army patrolling and fighting in Helmand I think things like ‘those guys have their s**t together’ and ‘that’s a good section attack’ and so on. Many Muslim Britons see ‘crusaders’ illegally oppressing their co-religionists; some of those Britons decide they should strap on a canvas vest full of TNT and ball bearings and blow up a bus.
Finally, he concludes:
I am afraid that this has been a canter through some very detailed developing work. What I want to leave you with is the sense that the British Army is determined to continue to adapt and develop from our start point on current operations. We have spent the past 5 years transforming to meet the demands of our current wars and the potential conflicts of the future, but I do not believe that anything I have outlined changes the course of that transformation in contact; it is merely a clarifying of the endstate. The developing concurrent nature of both Major Combat Operations and Stabilisation Ops means that the most likely is the most demanding. Therefore – and this is key to what I am saying - we must continue to optimise for the most likely – which is Stabilisation Operations – whilst maintaining our ability to dual role and meet the demands of Major Combat Operations – while remembering that at the lowest level fighting can be very intense whatever label you have applied to the operation.
Absolutely. The general’s diagnosis of the problem and recommended course of action are, in my view, accurate. The problem, of course, is the cost of the cure. There should be (should have been!) a large jump in defence expenditure but that seems unlikely in the current political and economic environment as a result of which there will not be enough money to go around. Dannatt clearly senses this and anticipates the internal battles that may ensue:
I am also conscious that I have only talked about the Land Environment and the Army in particular, but the land environment is more than just the Army. This is a joint and increasingly inter-agency activity and I would welcome the widening of what has been a largely Army debate to include the role that all environments can have in these most demanding and likely of operations. As I have said, I am sure that we will end up with some down arrows in our existing resource requirement in the Army, and I am ready for that debate right across Defence, where I expect to see other down arrows. Overall, we must recognise that we are unlikely to have enough to do all that we would like – we must now look seriously at what we really, really need.