The Case for Multi-National Air Defense in NATO

By LTC Pete Bier ad LT Col Garret O'Leary

Article published on: July 1, 2024 in the 2024 Issue 1 of the Air Defense Artillery Journal

Read Time: < 11 mins

During Steadfast Jupiter in October 2023, members of NATO’s Allied Rapid Reaction Corps trained on their ability to implement multiple Air Defense Battalions into Corps-wide operations.

Steadfast Jupiter 23 was a Multinational NATO exercise that took place over the course of 10 days in October 2023 and encompassed echelons ranging from Supreme Headquarters Allied Powers Europe (SHAPE) to multiple Divisional staffs, all arrayed across Eastern Europe. The Allied Rapid Reaction Corps (ARRC), a Multinational NATO Corps headquarters, deployed from the United Kingdom to Romania and took part in the exercise.

Under the exercise scenario, the ARRC had two subordinate Divisions assigned, the 1st Canadian Division, which included a Battalion of Skyguard, and the ACQUI Division, which included a Battalion of SAMP-T. Furthermore, the ARRC had Corps Air Defense (AD) troops assigned. This assigned Brigade consisted of three notional Battalions, one Italian, one British, and one American, with each Battalion comprised of one Patriot Battery, one Hawk Battery, one C-RAM Battery, and one Avenger Section. This task organization and command relationship existed only for this exercise. In reality, the ARRC, and any NATO Corps for that matter, do not currently have specific Divisions or Corps troops, such as Air Defense or Field Artillery Brigades assigned. The task organization changes for each operation or exercise.

The United States, and NATO as a whole, have begun the shift to focus on countering near-peer threats, and that includes reincorporating Air Defense into maneuver Units. Over the course of planning for and executing Steadfast Jupiter 23, the Air and Missile Defense (AMD) cell within the ARRC identified poignant issues that must be addressed when incorporating Multinational Air Defense into the Corps maneuver battlespace. The solution to these issues lies in the establishment of Multinational Air Defense Brigades, with dedicated Battalions, aligned with specific NATO Corps.

The first issue reared its head in May of 2023 when the ARRC was going through the Corps Planning Process for Steadfast Jupiter 23. Although the process of creating a Corps Prioritized Critical Asset List was rather straightforward, the process of creating an initial defense design proved much more difficult. The intricacies of the capabilities and limitations dictate that a subject matter expert participate in the defense design process in order to develop a quality product. With the ARRC AMD cell consisting of an Officer from the US, an Officer from Italy, and an NCO from the UK, expertise existed for some of the weapon systems involved, but certainly not all of them.

During Steadfast Jupiter in October 2023, members of NATO’s Allied Rapid Reaction Corps trained on their ability to implement multiple Air Defense Battalions into Corps-wide operations.

Implementing a Multinational Air Defense Brigade dedicated to the Corps would immediately rectify this issue. The Brigade staff would contain subject matter experts to whom the Corps AMD planners could refer to answer any questions regarding capabilities and limitations. Those same subject matter experts within the Brigade could also be relied upon to further refine and fine-tune the Corps AMD plan. It cannot be expected that the system of establishing ad hoc Brigades as needed will contain the necessary subject matter experts. Furthermore, the Multinational Air Defense Brigade would have dedicated Battalions with specific weapon systems. Hence, the Corps AMD cell could focus their efforts on developing a knowledge of those specific weapon systems, rather than a knowledge base of every Air Defense system across the 31 NATO countries.

The subsequent issue appeared during the execution of Steadfast Jupiter 23 in October of 2023. For exercise purposes, members of the British 16 Royal Artillery and 7 Air Defense Group acted as the Corps AD Brigade. With a structure focused on commanding and controlling their own weapon systems, the Sky Sabre and the High-Velocity Missile, they lacked the ability, in terms of personnel, knowledge base, and systems, to command and control the Units and weapon systems assigned to them during the exercise. This was of no fault of their own, because they were never intended to command and control such Units. They don’t have Air Defense Artillery Fire Control Officers (ADAFCOs) that can bridge the gap between the Army and Air Force because they don’t have Patriot Battalions under their command.

The issue of command and control extends beyond Units operating above the coordinating altitude. The United States Army is generally comfortable with High to Medium Air Defense (HIMAD) operating under centralized control while Short Range Air Defense operates under decentralized control. This paradigm does not exist across all NATO partners and their various weapon systems. During the exercise, participants struggled with establishing a command and control structure across the various weapon systems, incorporating the various entities, whether it be the AD Brigade, the Corps Joint Air Ground Integration Center (JAGIC), or the Air Component Command. This issue did not arise as the result of a flawed exercise which incorporated myriad Nations and weapon systems. This command structure could very likely exist in real-world NATO operations.

During Steadfast Defender 24, the United Kingdom’s 32 Royal Artillery Regiment rehearsed SHORAD operations as part of a Corps battle plan.

Establishment of a Corps-aligned Multi-National Air Defense Brigades with specified Battalions and weapon systems would solve this problem. The Brigades could man and equip themselves with appropriate personnel and systems that would allow them appropriately command and control their subordinate formations. They could also develop the applicable tactics, techniques, and procedures (TTPs) that would allow them to control their fire units, deconflict engagements, and ensure national, an experienced 140A could readily solve it with time and resources. However, introducing Multi-National weapon systems, which is now NATO will fight, presents many more interoperability challenges ranging from data sharing permissions to the physical linking of systems. Creating standing Multi-National Air Defense Brigades rather than ad hoc Brigades for specific exercises or mission would greatly alleviate this problem. It would give communication architecture experts the necessary time and resources needed to establish reliable interoperability. Once established, Units will not have to spend time on exercises solving the same problem of interoperability. Rather than focusing on how they communicate, they can focus on what they communicate and to whom. This will allow AD Units within NATO to move from the crawl phase of conducting AMD operations into the walk and run phases. Furthermore, protection of friendly aircraft as appropriate. However, and quite possibly most importantly, the Brigades would be able to train The Commander of NATO’s Allied Rapid Reaction Corps, LTG Sir Nick Borton, discusses operations during exercise Steadfast Jupiter, which took place in Romania in October 2023. solving interoperability issues will ensure more successful AD operation in the future. these TTPs with their subordinates and superiors. Rather than spending the exercise muddling through what command and control TTPs are applicable under the given scenario, as we did in Steadfast Jupiter 23, the Multi-National Air Defense Brigades could spend time training and perfecting their TTPs in anticipation of the coming conflict.

The final issue warranting consideration stems directly from the command and control issue discussed previously, and that is the issue of connectivity and interoperability. Since Steadfast Jupiter 23 was conducted via simulation below the Corps level, participants did not directly experience interoperability issues, but they discussed such issues at length. How would so many different systems from so many different countries pass data from one to another? How could early warning be disseminated across the battlefield? Who would maintain the recognized air picture? Does everyone have the same access to Link 16? If this problem set of connecting different weapon system was mono-national, an experienced 140A could readily solve it with time and resources. However, introducing Multi-National weapon systems, which is now NATO will fight, presents many more interoperability challenges ranging from data sharing permissions to the physical linking of systems.

The Commander of NATO’s Allied Rapid Reaction Corps, LTG Sir Nick Borton, discusses operations during exercise Steadfast Jupiter, which took place in Romania in October 2023.

Creating standing Multi-National Air Defense Brigades rather than ad hoc Brigades for specific exercises or mission would greatly alleviate this problem. It would give communication architecture experts the necessary time and resources needed to establish reliable interoperability. Once established, Units will not have to spend time on exercises solving the same problem of interoperability. Rather than focusing on how they communicate, they can focus on what they communicate and to whom. This will allow AD Units within NATO to move from the crawl phase of conducting AMD operations into the walk and run phases. Furthermore, solving interoperability issues will ensure more successful AD operation in the future.