Introduction and definition

4.1.1 Introduction

This chapter looks at the second and third components of C2 - decision making and control – and is divided into six sections. The first section defines both concepts and introduces them, after which the following sections will discuss the specifically military decision making and the decision-making process. The last three sections look at the various aspects of decision making in the analysis and planning, in the execution and finally in the assessment.

4.1.2 Introduction to decision making

Along with leadership, decision making is the commander’s main activity. The military definition of decision making is the ability to take a decision about a course of action to achieve an imposed or self-chosen objective in support of the higher commander’s intent.

The starting points here are this intent and the specific orders to the subordinate comman-der (see Section 2 for more details).

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Commanders must establish at all levels what the desired end state is, what the main targets are to achieve it, which actors can play a role and what information must be available. They do not, therefore, simply decide on the deployment of their own (sometimes specifically assigned) assets. A well functioning intelligence process⁴⁰ is, therefore, essential for effective decision making.

The ultimate aim of any decision-making process is to arrive at a plan which has a good chance of succeeding. This plan will then be translated into workable tasks and announced in good time, so that those implementing it will have sufficient preparation time.⁴¹ The decisions that are expressed in the orders must be in line with the intent of the authorising commander. They are thus flexible, and allow freedom for those carrying them out to make any necessary adjustments, for instance as a result of changing circumstances.

Because of the time that is normally available, the planning phase of an operation or action is ideal for the meticulous execution of the decision-making process, whereby a great deal of time will be available for the necessary coordination with other staffs involved in the operation. But it is while the plan is being implemented, when there is often less time available, that quick decisions have to be made. It is only then that unforeseen opportuni-ties or threats might arise and that the effects of action taken in response to them will be visible and possibly measurable.

4.1.3 Introduction to control

Control is the continuous process used by a commander to organise, direct and coordinate the activities of the units assigned to him as well as any support units. He does so by setting out decisions in orders, monitoring the execution of the orders and checking and evaluating the achieved result in accordance with the principles of cyclic decision making (see Section 4.3 for more detail).

During the decision making, the various activities planned for the units will be synchroni-sed and integrated as much as possible in order to achieve the desired effects. The comman-der will make any necessary adjustments to the actual execution by means of a fragmentary order. He will be assisted in this by his staff. Only the commander himself has the authority to direct troops, even though in practice he will often delegate that authority to his staff for routine matters. That does not alter the fact that consultation is possible at all times between staffs and sub units about all kinds of functional matters. Control is a continuous process.

40 The Joint Doctrine Publication 2: Intelligence (expected to be issued in 2010) will look at this in detail.

41 In practice, the 1/3 – 2/3 rule is used, whereby one-third of the available time will be reserved for the decision making and two-thirds will be

allocated to the executive level.

The point at which the commander issues his orders to his subordinate commanders is the ideal moment to convey his intent and explain his decision.

Whereas decision making focuses on the analysis and definition of the problem and the design of possible solutions, and is intellectual in nature, control concentrates more on the implementation of the decisions and the exploitation of time and space. It is more instrumental in nature and thus lends itself more to standardisation and computer support. In effect, a commander is providing his subordinate commanders with a set of instructions, even though they should be treated with caution in a complex environment in which actors and factors can change rapidly. A commander will show restraint in delegating control authority if he wants to be able to intervene quickly to ensure that his intent is realised. Control is

‘information-heavy’ and is characterised by processes and procedures.

A knowledge and command of actual doctrine and a practice-based set of standard operating procedures (SOP) for attached units and standard operating instructions (SOI) for the staff are essential to be able to coordinate the activities of attached troops. The use of these during the education and training period, particularly during the mission-oriented training prior to a deployment, is thus vital for the successful execution of a mission.

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It is crucial that any decisions taken are made known. As an exception, in the case of relatively straightforward tasks of short duration, this can be done orally. Normally, though, in the case of more complex actions and operations involving specifically trained forces, this will be done by means of written plans and orders, a list of which is included in Annex 4-1. These plans and orders can be provided rapidly in digital form, although for a successful execution, personal contact between the commander and his subordinate commanders and troops is essential, even in the case of larger structures. That is the only way to guarantee unity of opinion about the course of action and the intent. Personal contact has always been and will continue to be the crucial factor for control.