The final decision on whether to contribute troops and equipment to a NATO-led operation or mission is taken by national capitals, which communicate continuously with NATO through their permanent diplomatic missions, national military representation, or partnership liaison teams.
When a NATO operation or mission is deemed necessary, NATO’s military authorities draft a concept of operations – referred to as a CONOPS – which outlines the troop and equipment requirements necessary to meet the operations’ or mission’s objectives. Upon approval of the concept of operations and the release of a “Force Activation Directive” by the North Atlantic Council, Allied Command Operations (ACO), led by the Supreme Allied Commander Europe, initiates the force generation and activation process.
In general, the force generation process follows a standard procedure. For a given operation or mission, a list of personnel and equipment requirements (the Combined Joint Statement of Requirements), is produced by ACO and sent to NATO member countries and, in some cases, partner countries.
National offers to provide personnel are addressed during conferences attended by representatives from NATO and partner countries. These conferences take place on an ad hoc basis as required. For example, a force generation conference will take place prior to the start of a new operation or mission, or if there are significant changes in an ongoing operation. In addition to these conferences, an annual conference is held for all operations and missions, the Global Force Generation Conference.
Contributions by individual countries, both NATO members and partners, are subject to their overall national capacity, taking into account prior commitments, force size, structure, and activity level. Every contribution, whether big or small, is valuable and contributes to the success of the operation or mission.
In many cases, NATO or partner countries will commit complete or formed units to operations or missions. A country may volunteer to send a complete battle group, which – in the case of ground forces – could include infantry personnel, an armoured reconnaissance element, an artillery battery to provide fire support, and service support personnel.
Countries that provide leadership for an entire operation or mission, or take responsibility for central elements, are identified as “lead.” For example, the lead country for a given operation or mission might provide the command element and a significant part of the forces, and will also be responsible for filling the remainder of the force required.
Although NATO as an Alliance does own and maintain some specialised equipment, such as the AWACS aircraft and strategic communications equipment, troop-contributing countries generally commit the equipment necessary to support their personnel in pursuit of operational objectives.
It is during the force generation process that caveats are stated. While national contributions to NATO operations are expected to operate under the Alliance’s chain of command, the provision of forces by NATO and partner countries is sometimes conditional on factors such as geography, logistics, time, rules of engagement, or command status. Known as “caveats”, these conditions can restrict NATO commanders by limiting their flexibility to respond to situations on the ground. For this reason, the Alliance seeks national contributions with as few caveats as possible.
Provincial Reconstruction Teams
The Provincial Reconstruction Teams (PRTs) established in Afghanistan under the NATO-led International Security Assistance Force (ISAF), constitute an exception to the normal force generation process. These formations, which in agreement with the Afghan authorities will have all been gradually closed by the end of 2014, were interdisciplinary in contrast to traditional military operations. That is, they were comprised of development workers, military forces, diplomats and civilian police, who worked to extend the authority of the central Afghan government in remote areas, and to facilitate development and reconstruction.
Because of the unique combination of personnel, NATO was involved in generating forces for the military component of a PRT, while it was the responsibility of the contributing country to staff the civilian components. As a result, PRTs were a hybrid of personnel who fell under either NATO or national chains of command.
Coordinating troop contributions for non-NATO operations
Over the years, the Alliance has developed significant expertise in coordinating troop contributions for multinational operations. In the past, it has offered this expertise in support of non-NATO operations.
Under the Berlin Plus agreement, the Alliance cooperates closely with the European Union (EU) in the resourcing of selected operations. When requested by the EU, NATO’s Deputy SACEUR and his staff provide support in coordinating member countries’ troop contributions. For example, the Deputy SACEUR was identified as operational commander for Operation Althea, the EU-led operation in Bosnia and Herzegovina, and was responsible for force generation.
NATO also provided force generation support to Germany and the Netherlands, during their leadership of the UN-mandated International Security Assistance Force in 2003 in Afghanistan, prior to its conversion into a NATO-led operation.