MODES OF MULTINATIONAL LOGISTIC SUPPORT
MODES OF MULTINATIONAL LOGISTIC SUPPORT NOVEMBER 2005 I
INTENTIONALLY BLANK II
INTENTIONALLY BLANK IV
RECORD OF RESERVATIONS CHAPTER RECORD OF RESERVATIONS BY NATIONS V
RECORD OF RESERVATIONS NATIONS SPECIFIC RESERVATIONS VI
RECORD OF CHANGES Change Date Date Entered NATO Effective Date By whom Entered VII
RECORD OF CHANGES Change Date Date Entered NATO Effective Date By whom Entered VIII
TABLE OF CONTENTS Page N Chapter 1 INTRODUCTION 0101 Purpose 1-1 0102 Scope 1-1 0103 Modes of Multinational Support 1-1 0104 NATO s Logistic Support Policy 1-1 0105 Collective Responsibility 1-1 0106 Nations 1-2 0107 NATO Commander 1-2 0108 Authority 1-2 0109 Co-operation 1-3 0110 Co-ordination 1-3 Chapter 2 LEAD NATION 0201 Introduction 2-1 0202 Definition 2-1 0203 Concept 2-1 0204 Role and Responsibilities 2-2 0205 Funding 2-3 0206 Legal 2-3 0207 Duration 2-3 0208 Command and Control Relationship 2-4 0209 Quality Level of Support 2-4 Chapter 3 ROLE SPECIALIST NATION 0301 Introduction 3-1 0302 Definition 3-1 0303 Concept 3-1 0304 Role and Responsibilities 3-2 0305 Funding 3-3 0306 Legal 3-3 0307 Duration 3-3 0308 Command and Control Relationship 3-4 0309 Quality Level of Support 3-4 Chapter 4 MULTINATIONAL INTEGRATED LOGISTIC UNIT 0401 Introduction 4-1 0402 Definition 4-1 0403 Concept 4-1 0404 Roles and Responsibilities 4-2 0405 Funding 4-2 0406 Legal 4-2 IX
0407 Duration 4-3 0408 Command and Control Relationship 4-3 0409 Quality/Level of support 4-3 Chapter 5 THIRD PARTY LOGISTIC SUPPORT SERVICES 0501 Introduction 5-1 0502 Definition 5-1 0503 TPLSS on Operations 5-2 0504 The NATO Concept for TPLSS 5-3 0505 Operational Planning Requirements for TPLSS 5-3 0506 Funding 5-5 0507 Managing TPLSS Risk 5-6 0508 Military Resources to Support Contractors 5-7 Chapter 6 IDENTIFICATION OF AREAS FOR MULTINATIONAL TASK SHARING 0601 Introduction 6-1 0602 Classes of Supply 6-1 0603 Transport 6-2 0604 Material Handling Equipment 6-2 0605 Maintenance 6-3 0606 Laundry 6-3 0607 Postal Services 6-3 0608 Mortuary Services 6-3 0609 Sanitation 6-3 0610 Troop Welfare 6-3 0611 Medical Support 6-3 Chapter 7 VARIATIONS OF THE MODES OF MULTINATIONAL SUPPORT 0701 Timesharing 7-1 0702 Logistic Sorties 7-2 Annex A Appendix 1 Appendix 2 Appendix 3 Appendix 4 Appendix 5 Annex B Annex C Annex D Memorandum of Understanding (MOU) Financial Arrangements Sustainment of the MILU Command, Control and Coordination MILU Logistic Support and Sustainment Definitions Glossary of Abbreviations Glossary of Terms and Definitions Reference Publications X
CHAPTER 1 Introduction 0101 Purpose 1. The purpose of this document is to describe the key modes of multinational logistics: Lead Nation (LN), Role Specialist Nation (RSN), Multinational Integrated Logistic/Medical Unit (MILU/MIMU), and Third Party Logistic Support Service (TPLSS), which are outlined in AJP-4 (Allied Joint Logistic Doctrine). 0102 Scope 1. This publication is applicable to the full spectrum of potential NATO operations, both Article 5 and non-article 5, Crisis Response Operations (CRO), as well as in exercises, including those conducted in co-operation with the United Nations (UN), the European Union (EU), and the Organisation for Security and Co-operation in Europe (OSCE). It is also applicable for non-nato nations participating in NATO-led operations. 2. This publication specifically does not address the issue of Framework Nation because that concept has wider implications for organisational and command structures that are not directly pertinent to the delivery of logistic support. Other enablers of multinational logistic support such as Mutual Support Agreements are included. 0103 Modes of Multinational Support 1. There are a number of support options available to a NATO force listed in AJP-4. They include RSN, LN, National Logistics, National Support Elements (NSE), MILU, MIMU, Host Nation Support (HNS), Mutual Support Arrangements (MSA), contracting and TPLSS. Collectively these may be considered under the title of Modes of Multinational Support. 0104 NATO s Logistic Support Policy 1. NATO s strategic concept requires a high degree of co-operation, owing to the number of multinational formations that exist or are emerging, and the degree of multinational integration necessary at lower levels of command. 0105 Collective Responsibility 1. The NATO principles and policies for logistics set out in MC 319/1 establish the principle of the collective responsibility of nations and NATO authorities for logistic support of 1-1
NATO s multinational operations. The nature of this collective responsibility is set out in the following paragraphs. 0106 Nations 1. Nations must ensure, individually or by co-operative arrangements, the provision of logistics resources to support their forces allocated to NATO during peace, crisis and conflict. 2. Each nation bears ultimate responsibility for ensuring the provision of logistic support for its forces allocated to NATO. This may be discharged in a number of ways, including agreements with other nations or with NATO. Circumstances may arise where NATO commanders may need to mediate and coordinate such agreements to ensure effective logistic support of the force. 3. Nations retain control over their own resources, until such time as they are released to NATO. 0107 NATO COMMANDER 1. The NATO Commander is responsible for establishing the logistic requirements needed to support and sustain his force. He is also responsible for co-ordinating logistic planning and support within his area of responsibility. This will include, in close cooperation with nations, the implementation of an appropriate mix of the different methods of multinational logistic support. 2. In non- Article 5 CRO, the same responsibilities should also be granted, within a NATO-led operation, to a non-nato Commander of a multinational force, at the appropriate level. Such a Force Commanders responsibilities will also apply for non-nato nations troop contingents. 0108 Authority 1. Redistribution. NATO Commanders at agreed levels have authority to redistribute specified logistic assets committed by nations for the support of the forces under their command and situated within NATO Commanders operational boundary. Redistribution is not a routine procedure but only a temporary expedient to overcome unanticipated deficiencies in support of an operational mission. Redistribution shall not jeopardise the survivability of the providing force nor solve stockpile shortages. Terms and conditions for the transfer of authority over logistic resources are set out in Annex A of MC 319/1 and are subject to concurrence of the nations contributing to the forces concerned. 2. The Joint Force Commander assumes control of common-funded resources as directed and of multinational assets upon Transfer of Authority (TOA). 1-2
3. The Joint Force Commander has the authority to establish requirements for HNS and the use of local resources, to initiate and participate in bilateral and multilateral negotiations and, where appropriate, to conclude HNS arrangements on behalf of sending nations subject to their prior concurrence. Specific arrangements will govern this process for forces of NATO nations outside the integrated military structure and for forces of non-nato nations. 4. MC 319/1 authorises a Joint Force Commander to require reports on, and inspect 1, in peace, crisis and conflict, the quantity of specified logistic assets designated to support the forces, which will be under his command. For non-nato nations, this will include the certification of logistic units prior to their deployment and inspection of specified logistic assets as required. Medical assets may only be inspected in the AOR/JOA/AOO. 0109 Cooperation 1. Cooperation among the nations and NATO authorities is essential. For non-article 5 CRO, this cooperation must be extended to non-nato nations, the UN, the EU, the OSCE, and Non-Governmental Organisations (NGOs) as appropriate. Specific arrangements under the auspices of the appropriate Strategic Commander (SC) govern this process subject to concurrence of the nations contributing to the forces concerned. 2. Logistic cooperation between the civilian and the military sectors, within and between nations, must make the best use of limited resources. Duplication of common logistic functions must be minimised. Equitable cooperative arrangements and mutual assistance among nations in the provision and the use of logistic resources should ease the individual burden. 3. Adoption of the most appropriate mode of multinational logistics, or combination of modes, must be considered if a cooperative approach is to be successful in providing beneficial and cost effective logistic support for multinational forces. 0110. Coordination 1. Coordination of logistic support between NATO and national authorities is essential and must be carried out at all appropriate levels and also with non-nato nations, the UN, the EU, the OSCE and other organisations as required. 2. In order to coordinate national and multinational logistics and to execute their logistic authority and responsibilities, Force Commanders must have appropriate logistic command and control capabilities within their staffs. 1 FR cannot accept the authority to inspect logistic assets. 1-3
3. The MJLC concept was developed to provide Joint Force Commanders with the means to execute their logistic co-ordination responsibilities and to enable NATO HQs at the appropriate level of command to properly coordinate the logistic support within their JOA. Therefore the role and composition of the MJLC in any operation is critical to the success of logistic coordination in a multinational formation. 4. At Component level, organisations such as MNLC (Multinational Logistic Centre) can be established. It is anticipated that normally only a MNLC (M) 2 is required. Nonetheless, MNLC (L), MNLC (A) might be set up if required. Duplication of work between the MJLC and the MNLC has to be avoided.. 2 In a maritime environment the element acts as a Multinational Logistic Command. 1-4
CHAPTER 2 Lead Nation 0201 Introduction 1. A nation may accept responsibility, or be designated as being responsible, for procuring and providing a broad spectrum of logistic support for all or part of a formation and/or headquarters. Any nation assuming or being given such logistic responsibilities will be referred to as the Lead Nation for those responsibilities. This may also form part of the C2 arrangements for a multinational formation. 0202 Definition 1. A LN for Logistic Support assumes overall responsibility for coordinating and/or providing an agreed spectrum of logistic support for all or part of a multinational force, including headquarters, within a defined geographical area. This responsibility may also include procurement of goods and services. Compensation and/or reimbursement will then be subject to agreements between the parties involved. 0203 Concept 1. At the operational level the LN is normally responsible to the Joint Force Commander for coordinating the related logistic functions of the other participating nations within the functional and regional area of responsibility assigned to it for those tasks for which it has been designated as LN. However, there might be circumstances were the distribution of forces necessitates the creation of subordinate multinational commands supported by different lead nations. In such cases the LN will be responsible to the appropriate multinational command. 2. The LN concept is based upon a set of bi- or multilateral arrangements in which the LN takes most of the burden: finances, contracts, property issues and even legal liability. These must include Command and Control (C2) arrangements and detailed procedures covering the issues of compensation or reimbursement for goods and services provided. Typically the LN will provide the C2 element, a significant part of the structure and the coordinating function, but can rely on other nations to provide assets as necessary to complete the organisation and deliver the required service. However, the appropriate Strategic Commander (SC) should have Tactical Control (TACON) of the LN function. 2-1
0204 Role and Responsibilities 1. The roles and responsibilities of a LN in a NATO-led operation will change as the operation develops. The LN s principal responsibilities during the Preparation and Planning phase are set out below: a. Negotiates with the SC, the NATO Commander and the participating nations the precise span of responsibilities to be assumed. b. Reviews the Statement of Requirement (SOR) and proposes amendments as appropriate. The SOR must only identify the capability required; it is the task of the LN to specify the organisation and resources needed to deliver that capability. c. In conjunction with the SCs conducts an asset generation process to establish the organisation required providing the service, and coordinates the resourcing of the organisation through appropriate arrangements on a bi- or multilateral basis. d. Prepares the Technical Arrangements (TA) and Standing Operating Procedures (SOPs) as required. This includes C2, internal support and finance. e. Contributes to the development of those elements of the OPLAN and Support Plan (SUPPLAN) related to the functions for which it has been designated as LN. f. Identifies, develops, and consolidates all related infrastructure and contract requirements. 2. On arrival in the JOA and on behalf of the Joint Force Commander, the LN coordinates and de-conflicts the logistic effort of nations for those functions for which it has been allocated LN responsibility. This may be conducted either from its NSE or the appropriate logistic Staff. LN activities should be closely co-ordinated with the MJLC. In accordance with instructions issued by the Joint Force Commander the LN will submit reports on its logistic support and coordination activity. It is also responsible for liaison as necessary with the NSE of Troop Contributing Nations (TCNs). 3. The LN will be responsible for the manning and direction of any specialist functional cells related to the tasks for which it has been allocated responsibility in the Joint Force HQ CJ4 staff or MJLC if established. 2-2
4. A LN is likely to be the major provider of specialist assets and will also be responsible for arranging the provision of all necessary equipment and resources needed to support the task involved. The LN will also be responsible for managing and maintaining all infrastructure and facilities associated with the task(s) for which it has been given responsibility. 5. When a new nation or organisation assumes LN responsibility from an existing service provider, it may choose to accede, in every respect, to the arrangements already in place. If not, then new arrangements will have to be negotiated. 0205 Funding 1. Funding is primarily the responsibility of the LN. A LN will be responsible for providing advance funding to support the activities for which it is responsible. It will also negotiate and award contracts as necessary and carry out all relevant budget management activity including reimbursement or compensation. 2. Common funding may be available to support LN activity and should be agreed between the LN and appropriate SC. Where common funding is either not available, or not appropriate, the LN will be responsible for negotiating with supported nations. 3. Detailed financial arrangements will be agreed between the LN and supported nations. However, as a general rule, supported nations will be charged on the same basis as the units of the providing nation. 0206 Legal 1. The legal basis for any arrangement between a LN and a supported nation or a SC will be established at the same time as the financial and logistic support arrangements are negotiated with the designated LN. 2. In case a nation rotates into the JOA, it must be able to become a supported nation, if it so chooses, through the development of a separate TA with the LN, or by the extension of an existing multilateral TA. 0207 Duration 1. When a nation assumes the task of LN, the agreed duration of the task is to be set either through a formal Memorandum of Understanding (MOU), or similar agreement, between the LN and the relevant SC (or designated Joint Force Commander) or as part of the force generation process. 2. The formal agreement establishing a LN must include clear provisions on the manner in which the nation concerned may terminate its role. 2-3
3. In order to ensure the long-term sustainability of an operation, the SC or designated Joint Force Commander must prepare plans to ensure that the LN responsibility for agreed logistic support can be transferred to another nation or organisation during the course of the operation. If another nation cannot be found to assume the LN role plans should be prepared to enable logistic support to revert to individual nations. 0208 Command and Control Relationship 1. The NATO Commander retains appropriate authority over those logistic functions and activities for which he is responsible these are the overall delivery of logistic support and sustainment of the Force he commands. The NATO Commander will delegate parts of this authority to the LN, as appropriate and as agreed in the MOU or similar agreement. 2. The LN is responsible for tasking any Units, assigned to the function, which the LN has accepted. But nations retain national C2 of Units and assets provided to support the LN. 0209 Quality Level of Support 1. In general terms, the level of service provided should be no less than that which the LN would expect to provide to its own forces, and may be in accordance with existing Standardisation Agreement (STANAGs). The level of service that is required must be established in the logistics Annex to the OPLAN or SUPLAN or TA. The quality standards to be met should be based upon the conditions laid down in the relevant STANAGs such as 2034, or the specific STANAGs pertaining to the particular commodities and services being provided. 2-4
CHAPTER 3 Role Specialist Nation 0301 Introduction 1. A nation may have particular logistic strengths and capabilities that enable it to volunteer to provide such a service, or supply a particular commodity, for the whole force or part of it. Under the provisions of MC 319/1, a single nation may procure resources and provide specified support to the entire force, or a portion of the force, with supported nations compensating the RSN for the support provided. Using the role of contracting as an example, the RSN functions can range in scope from awarding a Blanket Ordering Arrangement for the provision of a logistic function during the course of an entire operation to the arrangement of a single one-time contract. 0302 Definition 1. One nation assumes the responsibility for providing or procuring a particular class of supply or service for all or part of the multinational force. The responsibilities include the provision of assets needed to deliver the supply or service. Compensation and/or reimbursement will then be subject to agreement between the parties involved. 0303 Concept 1. A RSN is responsible to the NATO Commander to provide a particular logistic function or commodity to all or part of the force. The RSN will provide the organisation and assets required to deliver that service or commodity. Units carrying out RSN functions, while formally belonging to their national logistic organisation, should be considered as part of the multinational formation and as such should be at least TACON to the appropriate commander. This commander is the tasking authority. 2. The support provided by a RSN is coordinated by the NATO Commander and financial arrangements for reimbursement and/or compensation will be developed through appropriate MSA or STANAGs. 3. National laws concerning the transfer of military goods and services must be considered before a nation is designated as a RSN, or volunteers for that role. 4. When deployed outside its national area, the security and administrative support (catering, fuel, etc.) of RSN units and facilities are to be provided by the local multinational commander. 3-1
5. The working relationship between supported nations and the RSN is that of customers to provider and can be based either on formal arrangements or on cross-servicing agreements (STANAG 2034). 0304 Role and Responsibility 1. TCN receiving, or seeking to receive, support from a RSN should provide a forecast of their requirements covering a 6-month period. The requirements should be reviewed and updated every six months. 2. The principle responsibilities of a RSN during the Preparation and Planning phase of an operation are set out below: a. In close cooperation with the Force Commander establishes the exact capability to be provided. This will usually be set out in the SOR in terms of capability instead of organisation. b. Reviews the SOR and decides on the organisation and resources needed to deliver the capability. c. Contributes to the development of those elements of the OPLAN and SUPLAN related to the functions for which it has been designated Role Specialist. d. Writes SOPs as required to enable the supported nations/formations to receive the service or commodity provided by the RSN. e. Establishes the infrastructure requirements and participates in the design of facilities as necessary. f. Develops the procedures and methods for recovering costs from supported nations. 3. On arrival in the JOA the RSN, on behalf of the NATO Commander is responsible for: a. Coordinating and providing for customers requirements. b. Reporting on its coordinating activity as required to the NATO commander. c. Liaison as necessary with NSEs. d. Manning and directing any specialist functional cells in the Joint Force HQ CJ4 staff or MJLC, if established, related to the task for which it has been allocated responsibility. 3-2
e. Providing all necessary equipment and resources needed to support the task involved. f. Managing and maintaining all infrastructure and facilities associated with the task/s for which it has been given responsibility. g. Negotiating and awarding contracts as appropriate to deliver the service or commodity required. h. Coordinating all budget and resource accounting activity associated with the delivery of the function for which it is responsible. 0305 Funding 1. Funding is the responsibility of the RSN. A RSN will provide initial funding to establish the service required. It will also negotiate and award contracts as necessary and carry out all relevant budget management activity including reimbursement or compensation. 2. If some part of funding is to be shared between nations it is the RSN s responsibility to negotiate this with the receiving nations, although reimbursement should normally be based on STANAG 2034. Detailed financial arrangements for reimbursement/compensation will be agreed between the RSN and supported nations. As a general rule supported nations will be charged on the same basis for services or commodities as units of the RSN. 3. Common funding may be available to support RSN activity and should be agreed between the RSN and appropriate SC which will include the agreed amount within its annual budget where appropriate. Where common funding is either not available, or not appropriate, the RSN will be responsible for negotiating with supported nations. 0306 Legal 1. The legal basis for any agreement between a RSN and a supported nation, or a SC, will be established at the same time as the financial and logistic support arrangements are negotiated with the designated RSN. 2. If a nation rotates into the JOA, it must be given the opportunity to become a supported nation, if it so chooses, through the development of a separate agreement with the RSN, or by the extension of an existing multilateral agreement. 0307 Duration 1. When a nation assumes the task of RSN, the agreed duration of the task is to be set either through a formal MOU, or similar agreement, between the RSN and the relevant SC (or designated NATO Commander) or as part of the force generation process. 3-3
2. The formal agreement establishing a RSN must include clear provisions on the manner in which the nation concerned may terminate its role. 3. In order to ensure the long-term sustainability of an operation, the SC or designated NATO Commander must prepare plans to ensure that the RSN responsibility for agreed logistic support can be transferred to another nation or organisation during the course of the operation. If another nation cannot be found to assume the RSN role, plans should be prepared to enable logistic support to revert to individual nations. 4. When a new nation or organisation assumes RSN responsibility from an existing service provider it may choose to accede, in every respect, to the arrangements already in place. If not, then new arrangements will have to be negotiated. 0308 Command and Control Relationship 1. The NATO Commander retains appropriate authority over those logistic functions and activities for which he is responsible - these are the overall delivery of logistic support and sustainment of the force he commands. The NATO Commander will delegate parts of this authority to the RSN, as appropriate and as agreed in the MOU or similar agreement. 2. Where a nation has accepted Role Specialisation (RS) responsibilities the units delivering the service or commodity concerned should be placed under TACON to the NATO Commander. Operational Tasking of RSN assets to deliver the level of support set out in the SUPLAN remains a RSN responsibility. 0309 Quality/Level of Support 1. In general terms, the level of service provided should be no less than that which the RSN would expect to provide to it s own forces, and may be in accordance with existing STANAGs. This should be established in the logistics annex to OPLAN or SUPLAN or subject to separate TAs. The quality standards to be met should be met by the conditions laid down in the relevant STANAGs such as 2034 or the specific STANAGs pertaining to specific commodities and services. 3-4
CHAPTER 4 Multinational Integrated Logistic Unit 0401 Introduction 1. The evolving nature of NATO operational deployments and the need to make the best use of limited national logistic resources, together with the increased participation of Partner Nations in NATO operations, has led to the development of the concept of Multinational Integrated Logistic Units (MILU). AJP 4(A) states that: To take advantage of economies of scale, support may be provided by MILUs and/or MIMUs. [ ] This is an attractive support option when a single nation is capable of providing the nucleus of the unit and/or the command structure, which is augmented by other nations to provide common support. 2. The purpose of this chapter is to set out NATO doctrine for the establishment and operation of MILU. 0402 Definition 1. A MILU is formed when two or more Nations agree, under the operational control (OPCON) of a Force Commander at joint force or component level, to provide logistic support to a multinational force. 2. Specific doctrine for the provision and operation of Multinational Integrated Medical Units (MIMUs) is provided by AJP-4.10. 0403 Concept 1. MILUs can fulfil the need of a flexible mode of multinational logistic support. This support option might be particularly attractive when a single nation is capable of providing the nucleus of the unit and/or the command structure around which the whole unit can be formed by augmentations and/or complementary units from other nations. MILUs should be utilised to reduce the logistic footprint and, where possible, capitalise on economies of scale. 2. One Nation should be in charge for setting up the unit by providing the C2 structure, Communication and Information Systems (CIS) and Combat Service Support (CSS) framework. Specific C2 and running arrangements are to be negotiated. The MILU commander needs having a clear authority on the sub-units (normally OPCON). A generic MOU is attached as Annex A. 4-1
3. MILUs are designed to provide specific logistic support where national forces cannot be provided, or could be better utilised to support the Commander s overall logistic support plan. They are an important mechanism or enabler by which some countries may contribute more effectively to the overall operational effort. The MILU concept is particularly important as a force regeneration tool particularly in low intensity operations or operations with a prolonged duration where logistic force contributions would be difficult to generate without cooperation. Most commonly, and for practical reasons, the minimum size of a MILU should be at company level. However, specialist units such as firefighting units and explosive ordnance disposal teams may well be smaller. 0404 Roles and Responsibilities 1. The roles and responsibilities of the MILU are the same as the logistic forces of national forces. The planning, and provision of services and support will not differ substantially from those that the MILU force components have been trained to provide to their own national forces. The C2 function required within a MILU will be more complicated than the requirements applicable to a national force. Therefore the organisation and structure of MILUs must consider the requirements for additional liaison officers and more diverse communication equipment, depending on the service provided and customer diversity. 0405 Funding 1. Funding of a national contribution to a MILU is the responsibility of the contributing nations in accordance with established NATO procedures. It normally falls under shared costs. 2. Cost sharing for Operations and Maintenance (O&M) and investment arrangements between nations forming a MILU are to be negotiated between the nations concerned (reimbursement of goods and services is normally based on STANAG 2034). 3. Common funding to support MILU activity should be agreed with the appropriate SC who will include the agreed amount within his annual budget where appropriate. 0406 Legal 1. Support arrangements are mutually agreed upon statements of principles and procedures that are applicable to the specific logistical support of an operation or exercise. Documents must conform to recognized NATO procedures and practices and generally should not contradict the domestic law of the involved nations. As there are also international legal considerations for some nations, legal advice is critical during all phases of logistical support negotiations. 4-2
2. As is the custom in modern international relations, Status of Forces Agreements (SOFAs) govern the relationship concerning the presence and activities of a force in a foreign territory. The NATO and PfP SOFAs and supplementary arrangements resolve many issues pertinent to logistical support in a foreign territory. Nations which do not have an existing SOFA in effect may require a supplemental agreement which recognizes an existing SOFA or the creation of a mission specific SOFA as a foundational document. The hierarchy of agreements and arrangements provided in this document (SOFA-MOU-TA-SOR) is intended as example. Other structures may be used as necessary and appropriate. 0407 Duration 1. The duration of the MILU should be agreed to in the force generation process. The agreement should be formalised in a MOU between the nations concerned and the SC. It must be recognised that some MILUs will be required for specific tasks with a predicted likely duration, such as port opening forces, and others such as infrastructure engineering units will be needed for an indefinite period of time. 0408 Command and Control Relationship 1. The MILU Commander shall be OPCON to the Force Commander; this allows the MILU to operate at the joint force or Component Command Level. If assigned to the Combined Joint Task Force (CJTF) level, the MILU will receive tasking from the MJLC or other joint force organisation designated by the Combined Joint Task Force Commander. If assigned to the Component Command Level, the MILU will receive tasking from the MNLC or other Component organisation designated by the Component Commander. As already stated, in order to fulfil his mission as a unit commander, the MILU Commander is to have OPCON over his subordinate units. 0409 Quality/ Level of Support 1. In general terms, the level of service provided should be no less than that which the Nation contributing assets to the MILU would expect to provide to its own forces, and may be IAW existing STANAGs. This should be established in the logistics annex to OPLAN or SUPLAN or subject to separate TAs. The quality standards to be met should be as laid down in the relevant STANAGs such as 2034 or the specific STANAGs pertaining to specific commodities and services. 4-3
0501 Introduction CHAPTER 5 THIRD PARTY LOGISTIC SUPPORT SERVICES 1. Provision of logistic support by conventional military means has proved to be increasingly difficult. In some cases, this has resulted in certain logistic capabilities being assumed by reserve forces, to which readiness constraints apply. In other cases, in-place resources are barely adequate to support the specific needs of the formations they support. As a consequence, Third Party Logistic Support Services (TPLSS) needs to be addressed. 2. Properly prepared and funded, TPLSS offers a useful force-multiplier tool with the potential to enhance Combat Service Support (CSS), release scarce military logistics resources for higher priority tasks elsewhere, overcome known logistic shortfalls, and provide long-term endurance. 3. Contractors are well suited to long term support commitments, and so can contribute to avoid the costs associated with normal military logistic support and its employment of logistic units. However, owing to the need to minimise the physical risk to contractor personnel, the use of TPLSS is best suited to support benign, low security threat, non-article V CRO. Although this should not be taken as a firm principle, the feasibility of using TPLSS resources to support any operation should always be considered. 0502 Definition 1. NATO s TPLSS Concept is defined as: The use of preplanned civilian contracting to perform selected logistic support services. Its aim is to enable competent commercial partners to provide a proportion of deployed logistic support, so that such support is assured for the Commander and optimises the most efficient and effective use of resources. 2. It is the preplanned element of organised, advanced preparation that distinguishes TPLSS from the ad hoc contracting activity that is widely conducted by nations both in peace and during operations. TPLSS entails a long-term approach to large scale logistics provision, requiring detailed negotiations and on-going management action with those contractors identified as being capable of delivering logistic support at the required scale and to the necessary standard. It is applicable to a wide range of service support functions, some examples of which are listed in Table 1 below: 5-1
POTENTIAL LOGISTIC SUPPORT SERVICES FOR THIRD PARTY DELIVERY Food Supply Transport Waste Disposal Food Delivery SPOD Operation Sanitation Services Food Preparation APOD Operation Troop Welfare Bulk Water Vehicle Recovery Labour POL Laundry/Bath Storage Engineering Services Printing Fixed Communications Strategic Aeromedevac ADP Support Mobile Communications Maintenance and Repair Environmental Hygiene Material Handling Equip t 0503 TPLSS on Operations Table 1 1. TPLSS does not lend itself to application in equal measures across all operational situations and it is not generally suited to support an Article 5 operation, due to the high level of risk for personnel. However, TPLSS is most likely to be of use in a non-article 5 Crisis Response Operation (CRO), and especially once the operational environment has become more benign. The possible roles of TPLSS in the main phases of an operation are outlined below: a. Deployment. Logistics support during the deployment process is usually provided from National military sources, and in the context of an austere enviroment. b. Reception, Staging and Onward Movement (RSOM). RSOM is a crucial point of overall deployment process and logistics support is predominantly dependant on National military resources. TPLSS sometimes may help overcome capability gaps in the RSOM functions. c. Sustainment. Use of TPLSS in this phase is likely to increase in almost direct relation to the speed with which the operating environment becomes more benign, and the operational imperative for military logistic support decreases. d. Redeployment. TPLSS plays a significant role in this phase, when achieving the most economic use of resources is often accorded a higher priority than speed. 5-2
0504 The NATO Concept for TPLSS 1. NATO s concept for TPLSS addresses the three separate elements that may form part of the overall Operational Capability for any operation. These elements are NATO formations (e.g. HQ CJTF/ MJLC), NATO nations, and Partner nations force contributions. Each of these elements needs to adopt a different approach to implementing TPLSS. In broad terms the approach for each element may be summarised as follows: a. NATO Formations. The SCs should assess the requirement and suitability of TPLSS support to the NATO formations for which they are responsible. They should identify those support functions for which delivery by military means is not essential: drawing on SC HQ Purchasing and Contracting (P&C) resources to obtain these TPLSS services. If this TPLSS activity is on a sufficiently large scale, SCs should consider developing prime contractor arrangements with a large commercial provider, or a consortium of smaller providers. In time these arrangements might be developed to become a Partnering Relationship, in which the commercial Partner plays an extensive part in SC logistic planning as well as in the provision of long term TPLSS support. b. Nations. National governments will assess the requirement and suitability of TPLSS to support national deployable force elements. As national TPLSS planning matures it may also become appropriate to develop either Prime Contractor or Partnering relationships. This may be a way to replace national troop contribution through national funding. c. Partner Nations. Partner nations may chose to develop TPLSS capabilities subject to national planning decisions. Partner nations forces committed to a NATO operation should be given the option of benefiting from NATO negotiated Basic Ordering Agreements (BOAs) and TPLSS contracts as agreed by the SCs. 0505 Operational Planning Requirements for TPLSS 1. Successful TPLSS demands that a number of inter-related elements be put in place, they are: a. The military capability to define accurately what a TPLSS contractor is expected to deliver expressed as a statement of work. b. A methodology to enable contracts to be conducted rapidly, to meet operational requirements when necessary, as well as in routine circumstances. c. Adequately trained and experienced staff equipped with a framework of delegations, down the chain of command, where appropriate. 5-3
d. Comprehensive listings of potential providers of TPLSS, preferably available online, together with appropriate communications capacity between NATO HQs, deployed force commanders and NSEs, and capitals. e. The ready availability of financial resources to meet initial costs on arrival in the JOA. f. The integration of TPLSS contractors into operational planning as early as possible to identify the requirements the contractor is going to place upon critical resources like APOD/SPOD capabilities, marshalling areas, road space, local contractors etc. 2. Implementation of TPLSS on operations will be conducted on two different military levels of operation - Strategic and Operational. a. Strategic: During the planning and preparation for an operation the SCs must take account of the possibility to use TPLSS to support the operation. In the Logistic Concept of Operations, OPLAN and SUPPLAN, the SC should provide clear guidance and advice to nations on the role of TPLSS as well as a plan for the funding of such a support. During the force generation process, Nations should declare the extent to which they intend to use National TPLSS systems to support their national contingents. They should also be invited to declare whether or not they would be prepared to extend their national systems to support other elements of the NATO Force. At the same time nations should declare the requirements the contractor is going to place upon critical resources like APOD/SPOD etc. b. Operational level of operation: During all phases of an operation in-place coordination of TPLSS effort should be conducted and monitored by the CJ4 staff or MJLC to ensure it conforms to the JFC s direction in the OPLAN and SUPLAN. Central to the success of this activity will be the MJLC Regional Allied Contracting Office (RACO). For nations that do not have, or do not choose to deploy contracting staff as an integral element of their NSE, the MJLC RACO can provide a collective capability for all elements of the deployed joint force as appropriate or requested. The MJLC RACO may provide contracting support to nations either within means and capabilities or through a Troop Contributing Nation (TCN) Support Cell. NATO Maintenance and Supply Agency (NAMSA) personnel or a mix of national and NAMSA personnel could staff the TCN support cell. NAMSA support is arranged by the nation on a reimbursable basis. 5-4
0506 Funding 1. Implementing TPLSS attracts 3 groups of costs: set up and management charges, cost of contractor pre-planned activity, and payment for actual services provided. These could be met from a number of sources: NATO common funding, national funding (a nation acting alone), multinational funding (a number of nations) and joint funding (a multinational funding arrangement such as a nation in concert with an ally, or with an ally and a NATO organisation). 2. Table 2 illustrates how these various forms of funding might be used to provide TPLSS in support of an operation. The SCs should determine the eligibility of PfP nations for Common funding as soon as possible Force Structure Operational Activity Deployment Mission Start up Sustainment Redeployment NATO HQ or MILU CF CF CF CF Non-NATO MILU MF or NF or JF MF or NF or JF MF or NF or JF Note 2 MF or NF or JF NATO Nations MF or NF MF or NF MF or NF or JF Note 2 MF or NF possibly JF PfP Nations on NATO led Operation Notes: MF or NF MF or NF MF or NF or JF Note 2 TABLE 2 Force Structure/Activity/Funding Relationships Note 3 MF or NF possibly JF Note 3 1) CF - Common Funding, MF - Multinational Funding, NF - National Funding, JF - Joint Funding. 2) To achieve the best economy of scale it may be appropriate to extend a common funded contract to cover the whole joint force. 3) It may be appropriate/cost-effective for nations to make use of NATO negotiated contracts associated with draw-down activities such as site reclamation and environmental cleanup activities. 5-5
0507 Managing TPLSS Risk 1. Adopting TPLSS as an integral element of logistic support on operations entails various degrees of risk. Some of the major risks include: a. Reliability and Quality. Generally, contractors can be reliable and produce services to the required quality. The key to success in this area lies in the drafting of the Statement of Work (SOW), careful assessment of contractor s bids to ensure they are realistic and achievable, and finally good in-place management by both the contractor and NATO/nations as the customer. However, planners and commanders should be prepared to provide a military fallback capability should a contractor be unable to fulfil his obligations for unforeseen reasons. b. Operational Security. This risk applies at two levels - at the operational (knowledge of military plans and intentions) and at the tactical level (local surveillance of military capabilities and intentions). Managing Operational Security risks is a task nations and NATO have managed for many years, not least in the case of strategic deployment, where Third Party providers have long had a significant role. The Tactical Security risk is considered low in instances when contractor staff are expatriate nationals of the same TCN as the force supported; but is higher in the case of host country or third-country nationals. The risk/threat can be managed by careful security vetting and monitoring of such personnel. c. Loss of National Military Capability. Nations must retain military capability to respond to the full spectrum of military threats. TPLSS cannot be seen as a true substitute for military capability. It is merely an important tool that should be used to supplement and support national military capability. Monitoring of any decline in military capability must be conducted through NATO s Defence Planning Process. 2. Contractor Status. There are serious legal implications associated with the use of commercial contractors to deliver TPLSS. Particular care needs to be taken over the consideration of potential legal pitfalls between the domestic law of a TCN and the domestic law of the nation or nations in which the TPLSS activity is conducted. Special attention must be paid to such legal interface issues when developing appropriate SOFAs and other international legal arrangements. Troop Contributing Nations have a legal duty of care for all personnel they employ on operations both military and civilian. They must therefore ensure both military and civilian personnel are protected from any local jurisdiction (where such exists), which may be considered to be unduly harsh or at variance from standards, which apply in the home territories of the TCNs. There is therefore a responsibility for the employing body (SC, NATO Nation, or PfP Nation) to ensure that SOFAs are properly drafted to cover contractor non-locally hired staff before such staff are deployed in support of an 5-6
operation. Failure to achieve this increases the risk that military deployment will not take place at all. Thus the importance of developing appropriate SOFA arrangements at a very early stage is a critical activity to be completed by planning and legal staff. 0508 Military Resources to Support Contractors 1. NATO Commanders will have to ensure that contractors and their staffs are properly briefed and are able to operate in a secure environment. This may necessitate the military staff accepting the need to provide appropriate threat briefings, mine awareness training, and security training. Commanders may also be required to provide at least a minimum standard of life support including emergency medical care, essential military equipment depending upon the contract terms and/or conditions. 5-7
CHAPTER 6 IDENTIFICATION OF AREAS FOR MULTINATIONAL TASK SHARING 0601 Introduction 1. During the planning process for each operation the degree of Multinational Task Sharing (MNTS) will be mission dependent, taking different factors into account e.g. the composition of the force, the materiel standardisation and the expected duration of the operation. No prescriptive solutions can be nominated in advance. However, some supplies and services lend themselves to provision by multinational arrangements. 2. Having identified the requirements and after requests have been made for force contributions, nations can agree on national or multinational arrangements to meet their respective needs, taking existing arrangements into account. The Logistic Support Plan for the force can then reflect those supplies and services, which will be provided on a multinational basis. 3. MNTS possibilities. The paragraphs 602 611 address the most suitable MNTS possibilities in the provision of the most important supplies and support functions. 0602 Classes of supply 1. Class I (rations, water). For Land and Air Forces based ashore Class I fresh rations and water (bulk and bottled) are suitable for multinational provision. Common quality and quantity standards especially for purity of bulk water and consumption rates are to be determined between participating nations. The preferred option for the provision of fresh food and bottled water is by Lead Nation although role specialisation is also possible. Pooling might only be suited for water purification and distribution assets. Combat rations are tailored to meet national tastes and requirements and are manufactured by a nation to meet specific contingencies. In general the provision of combat rations is to be a national task. Exceptionally however, the provision of combat rations by a RSN/LN could be used temporarily until the supply chain for fresh rations is established. At sea, maritime forces will normally be supported nationally by organic tankers/stores ships. However, depending upon the type of operation there may be scope for multinational cooperation, which should be identified during the planning stage. 6-1
2. Class II (Spare parts). Although standardisation aspects should be considered in the force packaging of a NATO force, the degree of equipment commonality is likely to be very low. Therefore, Class II items will generally remain nationally provided. Spare parts used in common equipment could be most suitably provided by a role specialised nation based on special bilateral or multilateral arrangements. For maritime forces multinational co-operation is effected through the Material Control Officer (MATCONOFF)/MNLC systems. 3. Class III (POL). In this area in general a higher degree of standardisation has already been achieved. Class III (POL) bulk lends itself to multinational provision, and arrangements for multinational cooperation between ships fitted with NATO standardised fuel couplings already exist. Specialist fuel products and lubricants can, of course, be provided multinationally, but the quantities involved may not warrant the extra coordination effort. The options of lead nation and role specialisation are equally suited for the provision of Petrol, Oil and Lubricants (POL). Pooling is restricted to distribution assets. 4. Class IV (Construction and barrier/fortification materiel). Class IV (construction and barrier/fortification materiel) can be multinationally provided. The preferred option is the provision by a LN although RSN may also be suitable. 5. Class V (Ammunition). Although ammunition could be interchangeable between national contingents, due to the technical specifications and safety/security aspects involved, it is more likely that ammunition will remain nationally provided. Exceptionally, RSN under either bi-national or multinational arrangements may be suitable. 0603 Transport 1. Transportation services can be organised multinationally including specialised assets (bulk fuel, refrigerated, water, buses, tank transporter vehicles, etc.). The multinational coordination of transportation, in cooperation with the HN, is essential to optimise the logistic flow of materiel to the multinational force. LN is considered to be the best suited MNTS option. Additionally, pooling of scarce resources is highly desirable. 0604 Material Handling Equipment 1. Materiel handling equipment, although normally provided as an integrated element of a national transportation or supply unit, could be utilised on a multinational basis. This applies particularly to that specialised equipment used for handling cargo at APOD/SPOD. Since this equipment is usually scarce, pooling is the preferred option. 6-2