the systems approach to transform the capabilities of military logistics

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THE SYSTEMS APPROACH TO
TRANSFORM THE CAPABILITIES OF
MILITARY LOGISTICS
Andrzej LIS* [email protected] Tomasz JAŁOWIEC** [email protected] *NICOLAUS COPERNICUS UNIVERSITY, TORUŃ, POLAND POLISH ARMED FORCES DOCTRINE AND TRAINING CENTRE, BYDGOSZCZ, POLAND **NATIONAL DEFENCE UNIVERSITY, WARSAW, POLAND ABSTRACT
The aim of the paper is to analyze the potential and challenges of applying the
systems approach to transform military logistics as an element of the armed forces
development program. First of all, the structure of the military logistic system is
identified and discussed. Secondly, the principles governing military logistics are
studied in order to point out the requirements for a military logistic system. Thirdly,
the operational capability based approach to transform and develop contemporary
armed forces is considered. Finally, the systems approach to develop the capabilities
of military logistics is operationalized and the tools supporting the planning of the
military logistic system development are proposed.
Keywords
Military logistic system, operational capabilities, military logistics capabilities, functional
components of operational capabilities, DOTMLPF-I
1. Introduction
The idea of a learning organization,
which emerged in the early 1990s, has
become one of the most popular contemporary
management concepts. A learning organization
is “an organization that is continually
expanding its capacity to create its future”
[1]. Originated in the business environment
the concept of a learning organization has
been adopted in the military context. For
instance, both NATO and the U.S. Army
officially declare their aims to transform
respectively into a “knowledge centric
organization” (KCO) [2] and a “knowledgebased organization” [3].
In his seminal work, Senge enumerates
systems thinking among the disciplines
(building blocks) of a learning organization
and labels it as “the fifth discipline”
integrating all remaining disciplines (i.e.
personal mastery, mental models, shared
vision and team learning) and “fusing them
into a coherent body of theory and practice”
[4]. System is defined as “a set of
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interrelated elements” or “an entity which is
composed of at least two elements and a
relation that holds between each of its
elements and a least one other element in
the set” [5]. The systems approach is
considered as one of the most prominent
theories in management studies. Applying
the systems approach means recognizing
that:
there
are
intra-organizational
interdependencies between the elements of a
system; the change in one subsystem may
affect other subsystems; the change in a
single subsystem (suboptimisation) may not
contribute to the improvement of the whole
system effectiveness; the impact of the
whole system on its elements is stronger
than the opposite influence; the external
elements have the impact on the open
system and its elements [6].
Contemporary armed forces face the
challenges of transformation due to
turbulent and multidimensional changes in
the global context and their operational
environments. Transformation processes
encompass all the functional systems of the
armed forces, including military logistics.
The mission of the military logistic system
is to provide a wide range of combat service
support to fighting troops in order to enable
them to achieve operational aims and
objectives. Therefore, the transformation of
the military logistic system is to be closely
linked with the changes in remaining
combat and combat support functions.
Moreover, any changes in the area of
logistics should take into account the variety
of logistic functions. As a consequence, the
systems approach is recommended to be
followed to transform military logistics.
The aim of the paper is to analyze the
potential and challenges of applying the
systems approach to transform military
logistics as an element of the armed forces
development program. In order to achieve
the main aim of the paper, the following
operational
objectives
have
been
established: (1) to identify the structure of
the military logistic system and the
relationships among its elements; (2) to
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study the principles governing military
logistics through analyzing the case of
NATO and some of the Alliance member
states; (3) to discuss the foundations of the
operational capability based approach to
transform and develop contemporary armed
forces; and (4) to operationalize the systems
approach to develop the capabilities of
military logistics and to propose tools
supporting the planning of the military
logistic system development.
The analysis of military documentation
and literature review were the main data
collection methods applied to achieve the
aim and objectives of the paper. The
analysis of military documentation included
NATO, U.S. and UK logistic doctrines and
handbooks. Certainly, due to unlimited
distribution of the study findings,
exclusively unclassified materials were used
for analysis.
2. The Military Logistic System
Military logistics is considered to be
one of the functional areas of paramount
importance for the contemporary armed
forces due to the fact that providing
operational troops with necessary supplies
and logistic services is indispensable for the
effectiveness of any military operation. In
NATO, military logistics is defined as “the
science of planning and carrying out the
movement and maintenance of forces. In its
most comprehensive sense, the aspects of
military operations which deal with: design
and development, acquisition, storage,
movement,
distribution,
maintenance,
evacuation and disposal of materiel; transport
of personnel; acquisition or construction,
maintenance, operation, and disposition of
facilities; acquisition or furnishing of
services; and medical and health service
support” [7]. In the national military
logistics doctrines of NATO members
states, the aforementioned definition is
directly adopted (e.g. the United Kingdom
[8]) or modified (e.g. the United States [9]).
In order to fulfill its mission during the
peacetime, crisis and war, the military
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logistics requires an efficient and effective
logistic system. A military logistic system is
defined as “a military organization following
the principles of military art and management
science, which consists of executive bodies,
logistic units, installations and relationships
among them. Such an organization aims at
planning and executing the deliveries of
supplies as well as rendering services to the
troops” [10].
There are three main criteria to identify
the elements of a military logistic system:
the logistic function, the category of
elements and the type of organizational
structure where logistic resources are
allocated. First of all, the following key
logistic functions are enumerated: supply,
logistic services, maintenance, movement
and transportation, engineering, medical
support and contractor support. Certainly,
some minor differences between the nations,
and even within nations, are observed (cf.
Table no. 1). Nevertheless, the aforementioned
elements make up the catalogue of core
military logistics functions.
Table no. 1
The comparative analysis of operational logistics functions
NATO
Supply
Services
Logistic Information
Management
Materiel
Equipment Maintenance
and Repair
Movement and
Transportation
Infrastructure Engineering
for Logistics
Medical Support
Contractor Support
Host Nation Support
U.S. Joint
Supply
Logistics Services
U.S. Army
Supply
Field Services
–
–
Maintenance
Maintenance
Deployment and Distribution
Transportation
Distribution
Engineering
General Engineering Support
Health Services
Operational Contract Support
–
Operational Contract Support
–
Source: own study based on: NATO Logistics Handbook, (Brussels: NATO Headquarters, 2012), 2325; JP-4.0. Joint Logistics, (U.S. Joint Staff, 2013), II.1-II.12; ADP 4-0. Sustainment, (Washington:
Headquarters Department of the Army, 2012), 1-2; ADRP 4-0. Sustainment, (Washington:
Headquarters Department of the Army, 2012), 1.1-1.2.
The theory and doctrine of the Polish
military logistics enumerates the subsystems
of the military logistic system which
correspond with the logistics functions in
NATO and the United States military. In
accordance with the Polish approach, a
military logistic system consists of the
following subsystems: management, supply,
maintenance and recovery, movement and
transportation, medical and military
infrastructure. The management subsystem
is responsible for planning, organizing,
coordinating and monitoring the activities of
military logistics. The supply subsystem
provides the troops with material supplies
and logistic services. The maintenance and
recovery subsystem is to ensure the
technical efficiency of the military
equipment.
The
movement
and
transportation subsystem is responsible for
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planning and organizing the movements of
troops and the transportation of supplies,
ensuring smooth traffic on the transportation
network and movement control. The medical
subsystem deals with the medical evacuation,
medical treatment and providing medical
supplies within the area of operation. The
military infrastructure subsystem is to
maintain military facilities for the purposes
of billeting, warehousing military supplies,
training troops etc. [11].
The military logistic system includes
the following elements: (1) military units and
subunits (supply, transportation, recovery,
maintenance and medical units), (2) stocks
of military supplies of various classes, (3)
military
infrastructure
(warehousing,
transportation, maintenance and medical
facilities) and (4) transportation means [12].
Logistic resources and capabilities are
allocated in the following types of
organizational structures: (1) deployable
logistic units supporting the troops with
supplies, providing them with maintenance
and recovery services and movement and
transportation capabilities, (2) in-place
elements of military logistics and (3) the
resources of the national economy
supporting the military logistics systems and
providing the host nation support to sending
nations [13].
The elements of the military logistic
system are linked to each other with three
following types of relationships: (1)
hierarchical relationships between superiors
and subordinates; (2) functional relationship
between the elements of the same subsystem
(e.g. supply, movement and transportation
etc.); and (3) cooperation and coordination
relationships [14].
Summing up, the study of military
logistics from the perspective of the systems
approach
highlights
some
of
its
characteristics and points out consequences.
First of all, the military logistics should be
perceived as a system, which consists of
subsystems (logistic functions). Secondly,
the military logistic system is an element
(subsystem) of wider systems (e.g. the
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NATO logistic system, the national military
system etc.). Thirdly, the methods of
rationalizing the military logistic system
(e.g. standardization, codification) may be
identified and applied in practice. Fourthly,
applying the systems approach supports
problem solving within the field of military
logistics [15].
3. The Principles of Military Logistics
The structure of the military logistics
system and all processes within the system
are determined by the principles of the
military art. Referring to the study by Polak
[16], Jałowiec [17] supports the opinion of
Nowak [18] who claims that the following
principles of the military art are of
predominant importance for the military
logistics system:
• aim of the logistic support;
• concentration of logistics efforts;
• economy (using only those logistic
resources which are necessary for the
effectiveness of operations;
• maneuver of logistic troops and
resources;
• coordination and cooperation (both
within the military logistics system and with
the elements of its environment.
The analysis of doctrinal assumptions
of NATO and its member states points out
the differences in identifying principles
governing military logistics. The NATO
Logistics Handbook enumerates the
following logistic principles [19]:
• collective responsibility of NATO
authorities and nations for logistic support;
• delegation of authority to a NATO
commander;
• primacy of operational requirement;
• cooperation with all parties involved
in providing support;
• assured provision of logistic resources;
• sufficiency;
• efficiency;
• flexibility;
• visibility and transparency.
The NATO logistic principles highlight
the importance of responsibility, authority
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and cooperation among the logistic systems
of allied and partner nations as well as all
organizations contributing to the logistic
support of the forces. The U.S. publication
on joint logistics provides the catalogue of
principles of logistics including [20]:
• responsiveness (“providing the right
support when and where it is needed”);
• simplicity (including “clarity of tasks,
standardized and interoperable procedures,
and clearly defined command relationships”);
• flexibility (“the ability to improvise
and adapt logistic structures and procedures
to changing situations, missions, and
operational requirements”);
• economy (“the minimum amount of
resources required to bring about or create a
specific outcome”);
• attainability (“the assurance that the
essential supplies and services available to
execute operations will achieve mission
success”);
• sustainability (“the ability to maintain
the necessary level and duration of logistics
support to achieve military objectives”);
• survivability (“the capacity of an
organization to prevail in spite of adverse
impacts or potential threats”).
The logistic doctrines of the U.S. Army
adopt some of the principles from the Joint
Logistics publication (e.g. responsiveness,
simplicity, economy, survivability) and they
mention some new principles such as:
integration of all supporting elements,
anticipation of operational requirements,
continuity of support and improvisation in
unexpected situations) [21]. The British
doctrine publication on logistics in joint
operations focuses the attention on:
foresight (“the ability to predict and manage
critical logistic constraints”), efficiency,
cooperation, simplicity and agility [22].
In spite of differences in defining
military logistics principles among the
nations, the focus is given on providing
necessary support for operational troops in
order to contribute to the achievement of the
overall aim of the operation. The principles
embedded in the situational context of the
armed forces establish the requirements for
a military logistic system and they
determine development directions of the
military logistic system.
4. Capability-Based Approach to
Develop the Armed Forces
As observed by Gen. Mieczysław Gocuł,
the Chief of the General Staff of the Polish
Armed Forces, according to the NATO
standards, the armed forces are transformed
by the changes in operational capabilities. In
the Polish Armed Forces, military logistics is
enumerated among five areas of operational
capabilities. The remaining capabilities include:
command and control, intelligence, fires and
non-kinetic effects, force protection and
survivability. The operational capabilities
are developed by changes in their functional
components such as: doctrine, organization,
training, material, leadership, personnel,
facilities and interoperability (DOTMLPFI).
The development of operational capabilities
is planned and coordinated by the nominated
organizers of the following functional systems:
command and control support, intelligence,
fires and non-kinetic effects, force protection
and survivability, logistics, human resources
management and training [23]. The model
of the operational capabilities development
within functional systems is presented in
Figure no. 1.
Human Resources Management
Training
Logistics
Force
Protection
Command
and Control
Fires & Nonkinetic Effects
Intelligence
Figure no. 1 The model of the operational capabilities development within functional systems
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The development trends in operational
capabilities are determined by both external
and intra-organizational factors. An
interesting analysis of the challenges for the
Polish Armed Forces development is
provided by Gen. Mieczysław Cieniuch, the
former (2010-2013) Chief of General Staff
of the Polish Armed Forces. In his paper,
Gen. Cieniuch discusses political, military,
economic, demographic and climate trends
in the macro-environment. The analysis
constitutes a basis for defining the challenges
and requirements for the contemporary armed
forces. Moreover, Gen. Cieniuch identifies
and studies the key areas of the Polish
Armed Forces transformation such as: the
shift from the compulsory service to the fully
professional armed forces (professionalization),
the changes of command and control
structures, education and training and the
modernization of military equipment [24].
Certainly, there is a need to monitor the
situation in order to identify any significant
shifts in trends and discontinuities in the
global and operational environments. Such
an analysis in the context of recent conflicts
in East Ukraine and Syria as well as defense
budget austerities caused by the financial
crisis is conducted by Maj. Gen. Anatol
Wojtan, the First Deputy Chief of the General
Staff of the Polish Armed Forces [25].
The process of operational capabilities
development starts with the study of the
operational environment and it encompasses
identifying required capabilities, acquiring
them and maintaining. In the Polish Armed
Forces, the efforts to develop operational
capabilities are coordinated by the Chief of
the General Staff who integrates all the
functional systems, sets priorities and
de-conflicts the development of operational
capabilities. The implementation of the concept
of coordinators (organizers) responsible for
managing functional systems enables the
armed forces to achieve the synergy effects
in the development of operational
capabilities, both in the national dimension
and in the NATO and EU frameworks. The
roles of coordinators encompass planning,
budgeting, allocating resources and monitoring
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the process of capabilities development [26].
In the field of military logistics, the Chief of
the Logistics Department (J4) is appointed
to be the functional system coordinator.
As regards the toolbox supporting the
development of operational capabilities, the
lessons learned (LL) system and the concept
development and experimentation (CD&E)
process should be mentioned. The lessons
learned system enables the military to
identify observations (capability gaps) and
best practices, analyze them, plan and
implement remedial actions, validate their
outcomes and finally to disseminate the
lessons. The LL system might be a very
useful tool to implement continuous
improvements triggered by small suggestions
made by the troops who are direct
beneficiaries of the military logistic system.
The concept development and experimentation
process supports the capability development
by the project management based methodology
to develop and test innovative solutions.
Therefore, the concept development and
experimentation process is recommended as
a tool to design breakthrough and
multidimensional innovations and to
validate already existing concepts [26].
Summing up, systems changes in the
contemporary armed forces are implemented
through the development of operational
capabilities within functional systems.
Effective military logistics, integrated with
combat and combat support functions is an
indispensable element of any armed forces.
Therefore, the development of military
logistics capabilities should be studied from
the systems perspective.
5. Development of Military Logistics
Capabilities
The functional components (doctrine,
organization, training, material, leadership,
personnel, facilities and interoperability) are
the areas of changes in operational
capabilities. Table no. 2 enumerates the
aspects of functional components which
should be taken into account when planning
the development of military logistics
considered as an operational capability.
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Table no. 2
DOTMLPFI – the functional components of the operational capabilities of the armed forces
Functional
components
Doctrine
Organization
Training
Material
Leadership
Personnel
Facilities
Interoperability
Aspects to be considered (questions)
Are there relevant doctrines and procedures in place (joint, service, agency
doctrines)?
Do existing doctrines and procedures require to be updated?
If no doctrine or procedures are in place, do new doctrine or procedures need to
be developed and implemented?
Do the elements of the military logistic system have properly set missions, roles
and responsibilities?
Are there organizational structures adjusted to the assigned roles and
responsibilities? (“strategy determines the structure”)
Do organizational values, priorities and culture contribute to the success of
logistic organizations?
Do logistic organizations have enough resources (human, material, financial,
informational) allocated to perform their duties properly?
How is training organized for the military logistic system?
Are training programs coordinated with operational needs and HRM?
How are training outcomes measured and monitored?
Is logistic training delivered effectively and in a timely manner?
Is logistic training properly staffed, funded and supported?
Are the logistic troops trained sufficiently to perform properly their roles and
responsibilities?
Are the logistic lessons from training, exercises and operations identified and
learned through effective lessons learned processes?
Are the logistic troops equipped with adequate (up-to-date) systems and equipment?
What are the required functionalities of new systems and equipment?
Who would be the primary and secondary users of new systems and equipment?
Can increases in performance be achieved without development of a new system?
Have leaders established the conditions for effective cooperation, coordination
and communication with external organizations?
Are the leaders of logistic organizations trained adequately to perform their
functions and implement changes?
Is the leadership team aware of determinants, drivers and barriers to develop the
military logistic system? (including both external and intra-organizational factors)
Are there enough personnel to handle the workload?
Do job descriptions accurately reflect tasks of logisticians?
Do logistic personnel meet the requirements of job descriptions?
Is the logistic infrastructure (warehousing, transportation, maintenance and
medical facilities) in adequate condition?
Is the access established to roads/rails/ports and routes of supply in order ensure
the freedom of movements?
Do logistic units have enough resources and support to establish field
infrastructure? (e.g. engineering support)
Are military technologies, logistic systems and equipment interoperable with allies?
Are the logistic procedures interoperable with allies?
Is the logistic personnel trained and prepared for cooperating with allied logistic
systems and troops?
Source: Adapted from Joint Analysis Handbook, (Monsanto: Joint Analysis and Lessons Learned
Centre, 2007), 43-44. Customized to the context of the military logistic system by the authors of the paper.
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The implementation of changes in
functional components should cover all the
functional areas of the military logistic
system. In order to plan and de-conflict
these changes the matrix of logistic
functions and operational capabilities
components (Table no. 3) is recommended
to be applied.
Table no. 3.
The matrix of of logistic functions and operational capabilities components
Military logistics subsystems (functions) Functional components of operational capabilities
D
O
T
M
P
L
F
I
Logistics management
Supply
Maintenance and recovery
Movement and transportation
Military infrastructure
Medical support
The military logistic systems is
considered to be one of the functional
systems of the armed forces. It means that
interdependencies with other functional
systems should be taken into account when
planning and implementing any changes
within the military logistic system.
Simultaneously, the changes in other
systems and their influence on logistics need
to be analyzed. In order to identify these
relationships,
the
matrix
of
interdependencies between armed forces
functional systems (Table no. 4) is
recommended to be applied as a tool
supporting the analysis.
Table no. 4.
The matrix of interdependencies between the armed forces functional systems
C2
Intelligence
Fires
Protection Logistics
HRM
Training
C2
Intelligence
Fires
Protection
Logistics
HRM
Training
Following the systems approach to
transform military logistics sets some
requirements. Firstly, all functional
components should be considered when
planning the development of the operational
capabilities of military logistics. Secondly,
the changes are to encompass all subsystems
(functions) of military logistics. Thirdly, the
holistic view is needed to analyze the
development of the logistic system in the
158
context of the armed forces transformation,
focusing on interdependencies between the
changes in the area of military logistics and
other functional systems.
6. Conclusions
The aim of the study was to analyze the
potential and challenges of applying the
systems approach to transform military
logistics as an element of the armed forces
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development program. First of all, the
structure of the military logistic system has
been identified and discussed. Secondly, the
principles governing military logistics have
been studied in order to point out the
requirements for a military logistic system.
Thirdly, the operational capability based
approach to transform and develop
contemporary armed forces has been
considered. Finally, the systems approach to
develop the capabilities of military logistics
has been operationalized and the tools
supporting the planning of the military
logistic system development have been
proposed.
The findings have established the
foundations and tools for further studies on
the role of the military logistic system in the
armed
forces
development
and
interdependencies between military logistics
and other operational capabilities and
functional systems. In the next step,
empirical research is planned to be
employed in order to explore thoroughly and
validate theoretical assumptions.
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