MULTINATIONAL INTEROPERABILITY REFERENCE GUIDE JUL

CENTER FOR ARMY LESSONS LEARNEDlack of common tactical doctrine causes multiple seams to appear betweenunits, evidenced not only by varying uniforms and equipment, but also bydifferent languages and military cultures, which an enemy may exploit.NATO developed a new strategic concept in response to the changingsecurity environment, titled NATO 2020: Assured Security; DynamicEngagement. Two main points of the concept are: (1) reaffirming NATO’score commitment: collective defense; and (2) working with partners.1To accomplish these ends, the Connected Forces Initiative and SmartDefense concepts were developed. The Connected Forces Initiative is a“multifaceted project which provides the structure for allies to train andexercise coherently; reinforces full-spectrum, joint, and combined training;promotes interoperability (including with unified action partners); andleverages advances in technology.” 2During a time when countries cannot afford large standing armies, militarycapabilities are acquired from multiple contributing nations to build tacticalformations. NATO’s Smart Defense attempts to synchronize requirements,pool and share capabilities, and prioritize efforts.3 When multiple countriescome together to accomplish the mission, issues of interoperability willarise. These must be addressed by leaders of that multinational tacticalformation.Here at the Joint Multinational Readiness Center (JMRC), we traininteroperability during rotational training events every month withmultinational formations at the brigade level and below from across Europeand elsewhere. Multinational rotations develop leaders, increase unitreadiness, and strengthen the NATO alliance — the longest, most successfulalliance in human history. The lessons learned from these exercises arecritical to us all as military land power professionals as we look to the futureand may be tasked to build a multinational tactical formation to fight andwin in a very complex world. On the following pages are just two recentexamples in the past year of brigade-size unit task organizations fighting ina decisive action environment – one formed and led by a Lithuanian brigadeheadquarters and the other by a United States Army brigade combat teamheadquarters.Saber Junction 14 saw 15 countries form a multinational brigade comprisingmore than 6,000 Soldiers (one-third of them provided by countries otherthan the United States) organized under a Lithuanian brigade headquarters.Even the individual battalions were task-organized with multiple countriesproviding assets to enhance the capabilities of the organization.Combined Resolve III saw 13 countries form a multinational brigadecomprising more than 4,000 Soldiers (more than half of them providedby countries other than the United States) organized under a U.S. brigadeheadquarters.2

MULTINATIONAL INTEROPERABILITY REFERENCE GUIDEA complex task organization requires leaders to take a flexible approachtoward the different capabilities and cultural norms of the countriesparticipating in operations. As defined and described in NATO doctrine(Allied Joint Publication-01[D] 0314), “the effectiveness of allied forcesin peace, crisis, or in conflict depends on the ability of the forces providedto operate together coherently, effectively, and efficiently. Allied jointoperations should be prepared for, planned, and conducted in a manner thatmakes the best use of the relative strengths and capabilities of the forceswhich members offer for an operation. Interoperability of formations andunits of a joint and multinational unit has three dimensions, technical (e.g.hardware, systems), procedural (e.g. doctrines, procedures), and human(e.g. language, terminology, and training).” 4 To mitigate the complexityof a multinational tactical formation, leaders must build an organizationthat has trust, a shared understanding, and the ability to work as a team. Toreach this goal, commanders must understand how to balance the three keyaspects identified above in building such a complex organization to achieveinteroperability: human, procedural, and technical.Human. Identify the problem and provide tools to solve the problem,understanding the people in your organization and where they can providethe largest benefit to mission accomplishment.5 The leader preparationneeded to pull units from different countries into an effective teamcannot be understated. The cognitive approach that all leaders take in amultinational formation will determine how effective the formation willbe. Leaders must spend the time to build relationships and trust, as wellas develop common understanding through the depth of the formation.Receiving new teammates, fostering dialogue about unit capabilities andlimitations, and leading more graduate-level discussion on “how we fight”are critical to team formation in a multinational environment. Leaders mustbe sure to understand what the multinational units in their task organizationcan do, in order to assign appropriate tactical tasks and make correctdecisions on task organization or command support relationships to enablesuccessful outcomes. Leaders also must ensure that the headquarters abovehas a common understanding, as well; therefore, leaders cannot focusonly on their unit, but must have a much broader understanding of theformation at echelon. The common understanding generated among leadersor commanders must also exist in staff-to-staff relationships to truly make amultinational formation interoperable.Procedural. “Procedural control is a technique for actively regulatingforces where actions are governed by written and oral instructions whichdo not require authorization to execute.” 6 This portion of interoperabilityaddresses procedures, policies, and doctrine, or the lack thereof. Inorder to build an effective tactical organization, common doctrine andprocedures enable common vision and systems for dealing with routineoperations and actions. For a brigade, the doctrine to conduct unified land3

CENTER FOR ARMY LESSONS LEARNEDoperations requires leaders and staffs to engage in a series of “how wefight” discussions to come to an agreement on how the entire formationwill conduct offensive, defensive, and stability operations. The commondoctrine of the formation may be a combination of several nationaldoctrinal solutions, but it must be discussed, agreed upon, and implementedthroughout the formation to allow interoperability to occur. An examplefrom a recent JMRC exercise is a discussion among a U.S. brigadecommander and four battalion commanders (three from other nations) aboutthe definition of a tactical task. Due to national doctrines, each officer had adifferent definition of “seize.” The solution was to use a common definitionand then to define the tactical tasks in brigade orders until the entire teamhad a common understanding. The same is true for everything from reportsand returns at echelon to meeting inputs, etc. Getting on a common sheetof music is a critical undertaking in creating an interoperable tacticalformation.Technical. This aspect asks what equipment you use and how you make itoperate with other equipment. A future vision for tactical interoperabilitywas best stated recently by LTG Ben Hodges, Commander of U.S. ArmyEurope, as “three key elements of interoperable communications to include:secure tactical FM radio (U.S. company under an Estonian battalion);interoperable friendly force tracking (FFT) (such as Blue Force Tracker; there are 13 different types of FFT in NATO); and a lower-unit commonoperational picture (COP) that shows up on a higher unit COP (a Germanbattalion under a U.S. brigade).” 7A commander may not be able to influence what equipment countriesprovide to the organization, but knowing the capabilities and limitations ofthat equipment will help in the task organization of the force enabler. Asa commander, how do I communicate with my subordinate commanders?How do my subordinate units request enablers like air weapons teams,or call for indirect fire when they are requesting an asset from anothercountry in the formation and do not have compatible communicationssystems? Commanders must take a very deliberate approach to answeringthose questions and more. Not every country brings compatible radios,FFT devices, or command information systems. There are some technicalsolutions that can be addressed, and for NATO members, STANAGs forsome of the communications architecture can result in interoperability.Leaders must be prepared to build and embed liaison teams with the rightcommunications packages both vertically and horizontally to connectencrypted enclaves if the entire formation cannot be on the same, commonnetwork. Leaders must address the combination of digital capabilities andanalog requirements, from overlays to orders to the COP for the formation.4

MULTINATIONAL INTEROPERABILITY REFERENCE GUIDEAlthough the United States has forces aligned with specific regionsaround the world where bilateral or multilateral defense treaties exist,that does not necessarily mean you or your formation will join with thosecountries exclusively on some future contingency operation. The issuesrelated to interoperability will remain the same no matter what the taskorganization is. Although the observations included in this handbook comefrom rotational training at JMRC, where we use the NATO construct toaddress many of the issues with tactical interoperability, gaps still exist atthe tactical level. The lessons in this handbook transcend this location andcan be informative to any tactical unit deploying to any part of the worldto join or form a multinational tactical formation. This handbook attemptsto provide commanders or leaders at echelon and their staffs a foundationof knowledge on how to become interoperable multinational formationswhile working under constrained timelines. As each multinational formationmay offer different challenges, units should choose the principles in thishandbook that fit specific problem sets and use them as a basis to beginsolving interoperability issues.Thomas H. MackeyColonel, InfantryCommander, Operations GroupJoint Multinational Readiness CenterEndnotes1North Atlantic Treaty Organization, NATO 2020: Assured Security; DynamicEngagement (NATO Public Diplomacy Division. Brussels, Belgium: NATOGraphics & Printing, 2010), 8-10.North Atlantic Treaty Organization, Connected Forces Initiative, http://www.nato.int/cps/en/natolive/topics 98527.htm.2North Atlantic Treaty Organization, Smart Defense, http://www.nato.int/cps/en/natohq/topics 84268.htm.3North Atlantic Treaty Organization Allied Joint Publication 01(D), Allied JointDoctrine (Brussels, Belgium: NATO Standardization Agency, 2010), 3-4.4U.S. Army Doctrine Publication 6-0, Mission Command (Washington, D.C.:Government Publishing Office, 2012), 10.56U.S. Army Doctrine Reference Publication 6-0, Mission Command (Washington,D.C.: Government Publishing Office, 2012), 2-16.LTG Hodges, Frederick (Ben), Saber Junction 15 NATO DV Day Briefing. USAGBavaria-Hohenfels. 15 APR 2015. Speech.75

MULTINATIONAL INTEROPERABILITY REFERENCE GUIDEChapter 1Mission Command Warfighting FunctionObservation: Understanding Unit Capabilities and LimitationsDiscussion: Units that have never worked together before, whetherthey come from the same or different countries, require time to developrelationships; learn the capabilities and limitations of one another’sequipment and weapon systems; understand their respective tactics,techniques, and procedures (TTPs); and, finally, implement and practicecommon standards, procedures, and tactics. Units also must developcommon casualty treatment and evacuation methods and viable sustainmentplans (concepts of support) for all classes of supply.Failing to understand all aspects of partner forces degrades tempo,flexibility, and agility. More importantly, poor understanding of partnerforces increases the risk of fratricide and exploitation by enemy maneuver/effects.U.S. forces typically have not been exposed to North Atlantic TreatyOrganization (NATO) standardization agreements, terminology, or tactics,and tend to make communication more difficult by using American terms(especially acronyms and initials), contractions, and slang.Many countries, including non-NATO members, participate in multinationaltraining rotations at the Joint Multinational Readiness Center (JMRC).These countries bring a wide variety of uniforms, vehicles, weaponsystems, and general equipment. The different weapons and vehicles do notnecessarily use NATO standard ammunition or JP8 fuel.Sustainment for multinational forces can be difficult, as each countrywill have its own sustainment systems. This problem raises challengingquestions about such issues as how repair parts will flow, what types ofrations units will consume, where units will get their fuel and supplies, etc.U.S. forces must be mindful of what support and classes of supply theyprovide to their partner forces.Recommendations: Understanding the capabilities of partner forces mustbe a formal, structured process supervised by unit leaders. Units should planand execute the process any time the task organization changes. Unit leadersmust teach measures to identify vehicles and prevent fratricide to everySoldier in all formations and practice them.Prior to arrival at the training center, units should research their expectedpartner forces. Open-source references such as Jane’s Defense Weeklyprovide a wealth of foundational knowledge and are easy to access. Perhapsthe most important focus areas are vehicle and uniform recognition. Units7

CENTER FOR ARMY LESSONS LEARNEDshould develop reception plans for how they will receive and integratepartner forces into their teams. The integration plan should start with basiclife support, followed by a sustainment plan, a communications plan,and, finally, common procedures and tactics. Also, prior to arrival, unitsshould develop an integration checklist that details every task units mustaccomplish with new partner forces or assets prior to conducting operations.This checklist should apply to U.S. forces and assets, as well.Integration of partner units should begin immediately upon the brigade’sarrival at JMRC or as soon as a partner force arrives. Face-to-face contactis the preferred method for initial contact, and commanders should makethemselves available to meet the subordinate commanders as soon aspossible. Several techniques have been effective in sharing unit capabilitiesand limitations. They include: Establish warfighting function working groups to discuss and resolveinteroperability issues. Commanders must approve the solutions,update them in unit standard operating procedures (SOPs), and thenissue them in written orders to subordinate units. The unit mustaddress fratricide prevention measures in detail prior to conductingany operation. Allow time up front to get to know individual leaders on a personalbasis. Give each unit a briefing role in commander’s update briefings.Prepare unit commanders for their roles and briefing areas. Conductcommander’s update briefings face to face for the first few meetings. Ensure that the brigade staff includes every partner country (regardlessof size) in running estimates and staff update briefings. Have each unit prepare a unit capabilities briefing to deliver to thebattalion and brigade command groups and brigade staff. Review and update unit SOPs to ensure ease of translation and resolveforeign disclosure issues. Create a streamlined version of the SOP formultinational forces to remove any sensitive information. Be preparedto provide a copy of the SOP to all partner units. If possible, have theSOP translated. As time allows, have partner forces visit every unit within the brigadeand allow Soldiers to handle one another’s vehicles and weapons.Ensure that U.S. forces conduct the same demonstrations for partnerforces. Allow every Soldier to observe the vehicles maneuvering inopen and restrictive terrain to help identify vehicles and understandtheir capabilities.8

MULTINATIONAL INTEROPERABILITY REFERENCE GUIDE Ensure and enforce collaborative planning with subordinate units(field grade officer input). Subordinate unit input is critical for courseof action development and is strongly encouraged for course ofaction analysis. Liaison officers (LNOs) typically are very effective atresearching and relaying information. They typically are not skilledplanners or maneuver experts — do not rely on them as such forconducting the military decisionmaking process (MDMP). Make time for detailed one-on-one back briefs with unit commanders.Detailed back briefs with solid rehearsals are arguably much moreimportant than operation orders.Observation: Understanding National CaveatsDiscussion: Every country has laws and regulations that govern the trainingand employment of its armed forces. National caveats are restrictionsplaced on the use of national military contingents operating as part of amultinational operation. Caveats may limit a troop-contributing country’srules of engagement and ability to perform certain tasks, missions, ormaneuvers. For example, combat vehicle drivers in some armies arerequired to sleep at least six continuous hours in a 24-hour period prior toconducting operations. It is important to understand such regulations so thatplanners can incorporate them into operations.Broadly, there are two types of caveats: declared and undeclared.Declared caveats are expressly communicated and known to commanders.Undeclared caveats are typically unknown to commanders until theyassign multinational units a specific mission, at which point the tasked unitcommunicates a restriction on some portion of the task due to a particularcaveat. Uninformed commanders might view undeclared caveats assubordinate units pushing back or trying to get out of unwanted tasks. Morerealistically, undeclared caveats result from lack of research or collaborativeplanning wherein subordinate units assist their headquarters on how best toemploy their forces.Recommendations: To reduce the impact of national caveats on operations,commanders at every level must understand how caveats will affectunit capabilities. Prior to working with partner armies, unit leaders mustresearch, record, catalogue, and maintain listings of caveats for everycountry participating in the exercise. Rotational planning conferencesprovide great opportunities to begin dialogues with participating countriesabout national caveats. Rotational planners from the respective countriesare also able to provide contact information for unit leaders to further suchdiscussions. Establishing early unit-to-unit contact fosters relationship9

CENTER FOR ARMY LESSONS LEARNEDbuilding and limits discovery of undeclared caveats later during training.Offices of defense cooperation are also able to provide essential informationabout national caveats.To limit any negative effects of undeclared caveats, units should foster acollaborative environment based on open communication and teamwork.Subordinate units must be encouraged, and even required, to provide inputto the battalion and brigade staffs on how the respective multinationalforces are typically and best employed. Subordinate leaders must activelyassist their higher headquarters during the planning process by ensuring thatappropriately trained personnel are present during key steps of the MDMP.Establishing relationships among training units and facilitating informationsharing prior to the rotation help foster team building and greatly reduce thesurprise discovery of undeclared caveats during missions.Observ

supporting and enabling joint, whole-of-government, and multinational land-based operations. We must develop and advance a base technological architecture into which other military Services, U.S. government agencies, and allies and partners can easily “plug and play.” Improving the Army’s multinational force interoperability (MFI) with allies